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Oklahoma
School Performance Review
Office of Accountability
April 2011
Education Oversight Board / Office of Accountability
Susan Field, Chairman • Robert Buswell, Executive Director
655 Research Parkway, Suite 301 Oklahoma City, OK 73104 (405) 225-9470 Fax (405) 225-9474 www.SchoolReportCard.org
April 2011
Fellow Oklahomans:
The Education Oversight Board and the Office of Accountability are pleased to present this
school performance review for Eldorado Public Schools (EPS).
This review is intended to help EPS contain costs, improve management strategies and
operations, and increase student performance. To conduct this review the office contracted with
Prismatic Services, Inc.
Eldorado Public Schools has a number of commendable programs and enjoys support from
district residents; however, it is faced with several challenges. The review contains
recommendations to help EPS meet those challenges and improve the efficiency of their
operations. The review also highlights a number of “Commendable Practices” in programs,
operations, and services provided by the administration, teachers, and staff.
We are grateful for the cooperation of EPS Board of Education, administration, staff, parents,
and community members. They are to be commended for their dedication toward improving
educational opportunities for their community.
We are pleased to announce that this review is available in hardcopy through the Office of
Accountability and on the office’s web site at www.SchoolReportCard.org.
For the Education Oversight Board, For the Office of Accountability,
Susan Field Robert Buswell
Oklahoma School Performance Review
Eldorado Public Schools
April 2011
Education Oversight Board Office of Accountability
Susan Field, Chairman Robert Buswell, Executive Director
Patrick Gilmore, Vice-Chair Jeff Wallace, Assistant Director
Dr. Sherry Labyer Jerry (Yu-Chao) Hsieh, Database Design Analyst
Ami Shaffer Dr. Lonnie Melvin, School Improvement Coordinator
Edward A. Petersen
Reed Downey
Millard House II
Senator John Ford
Representative Ann Coody
Prismatic Services, Inc.
Tatia Prieto, President, Asst Project Manager
Rick Cobb, Project Manager
Dianne Lane – Chapter 1, Management, Personnel, & Communications
Loretta Schmidt – Chapter 2, Instructional Delivery
Jerry Williams – Chapter 3, Business Operations
Bob Holdredge – Chapter 4, Facility Use/Management; Safety/Security
Tatia Prieto – Chapter 5, Child Nutrition
Courtney Lockridge – Chapter 5, Technology
Scott Allen – Chapter 5, Transportation
This publication was prepared by the Office of Accountability as authorized by Title 70 of the Oklahoma Statutes, Section 3-118 and 1210.5331.
It was printed by the Oklahoma State Regents for Higher Education Central Services Department, as authorized by the Education Oversight
Board. Forty copies have been prepared at a cost of $1,518.00. Copies have been deposited with the Publications Clearinghouse of the Oklahoma
Department of Libraries, April 2011.
Eldorado Public Schools Table of Contents
i
Page
Executive Summary 1
Acknowledgements 1
Eldorado Public Schools 2
Commendations 4
Recommendations and Projected Costs and Savings 6
Chapter 1:
Management, Personnel, and Communications 1-1
A. Management and Organization 1-9
B. Personnel Management 1-21
C. Communications and Community Involvement 1-28
Chapter 2:
Instructional Delivery 2-1
A. Instructional Delivery and Student Performance 2-1
B. Professional Development 2-19
C. Gifted and Talented Education 2-26
D. Special Education 2-30
E. Career and Technology Education 2-34
F. Guidance and Counseling 2-36
G. Federal Programs 2-37
Chapter 3:
Business Operations 3-1
A. Financial Processes 3-8
B. Asset and Risk Management 3-20
C. Activity Funds 3-25
D. Auditing and Internal Controls 3-27
Chapter 4:
Facilities Use and Management 4-1
A. Facilities Planning and Construction 4-4
B. Maintenance and Custodial Operations 4-13
C. Energy Management 4-25
D. Safety and Security 4-35
Chapter 5:
Support Services 5-1
A. Child Nutrition 5-1
B. Technology 5-23
C. Transportation 5-45
Table of Contents Eldorado Public Schools
ii
Appendices:
A. Staff Survey Results A-1
B. Parent Survey Results B-1
C. Student Survey Results C-1
D. Community Input Focus Group Comments D-1
E. Enrollment Projections E-1
F. Thermal Images of Facilities F-1
Executive Summary
The Oklahoma School Performance Review (OSPR) Program was authorized by the Oklahoma
Legislature during the 2001 session and amended during the 2005 session. The responsibility to
conduct school performance reviews was assigned to the Office of Accountability, which is
under the direction of the Oklahoma Education Oversight Board. The purpose of a performance
review is to develop findings, commendations, and recommendations regarding (1) containing
costs; (2) improving management strategies; and (3) promoting better education for Oklahoma
children.
The Office of Accountability began the performance review of Eldorado Public Schools (EPS) in
August 2010. The Office of Accountability contracted with Prismatic to assist with the review.
The Prismatic consulting team conducted individual and small group interviews with district
personnel and board of education members. The team conducted a community focus group of
business and community leaders. The team also reviewed operations by touring facilities,
observing cafeteria operations, and riding school bus routes. Administrators, teachers, support
staff, parents, and students completed confidential surveys. The consulting team tabulated the
surveys and used the results in this review. Survey results are contained in Appendices A through
D.
Based on size, geography, and demographics, the Office of Accountability selected five
Oklahoma school districts as peer districts for comparison purposes. They are: Blair, Duke, Felt,
Olustee, and Ryan. These are called peer districts throughout this report.
For further comparison, a Community Group average is also used throughout the report. EPS
falls into community group H2, which includes districts with an ADM of fewer than 250
students. The “2” indicates that the percentage of EPS students eligible for free and reduced price
meals is above the state average.
During this review, Prismatic Services developed 73 recommendations designed to improve
operations and support increased academic performance. In some cases, these recommendations
should result in a net savings to the district, in some cases a net cost, and in some cases should
have no fiscal impact but should improve district effectiveness. A detailed list of costs and
savings by recommendation appears in Exhibit 4.
ACKNOWLEDGMENTS
The Office of Accountability and Prismatic wish to express their appreciation to the Board of
Education of Eldorado Public Schools, its Superintendent, Dr. Harold Hayes, and the many
district employees, students, parents, business leaders, and community residents who helped
during this review.
Prismatic Services, Inc. Page 1
Executive Summary Eldorado Public Schools
Page 2 Prismatic Services, Inc.
ELDORADO PUBLIC SCHOOLS
Eldorado Public Schools are located in Jackson County, Oklahoma, a county with a total land
area of 803 square miles. Jackson County is located in the southwestern corner of Oklahoma. Its
county seat, Altus, is home to Altus Air Force Base. In 2009, the city of Eldorado’s population
was estimated at 455 by the U.S. Census Bureau. The EPS student body is dispersed across a
total land area of 181 square miles within Jackson County, with 0.6 students per square mile.
Demographic data reflect the following information regarding Eldorado, compared to the
Oklahoma state average:
• a lower median household income;
• a significantly lower median house value;
• a higher percentage of residents with income below the poverty level; and
• a significantly lower percentage of residents with a bachelor's degree or higher.1
EPS has one campus, divided for accreditation purposes into an elementary school (EC-8), and a
high school (9-12). Exhibit 1 shows average daily membership (ADM), ethnicity, and eligibility
for free or reduced price meals for EPS and each of its schools for the 2008-09 school year.
Exhibit 1
EPS Student Enrollment and Socioeconomic Characteristics
2008-09
School
Grade
Span
Fall
Enrollment Caucasian Black Asian Hispanic
Native
American
Eligible
For
Free or
Reduced
Price
Meals
Elementary
School EC-8 93 71% 5% 0% 18% 5% 76.0%
High School 9-12 28 68% 0% 0% 29% 4% 86.0%
EPS Totals EC-12 121 70% 4% 0% 21% 5% 79.0%
Source: Office of Accountability, Profiles Database
Exhibit 2 shows demographic information for EPS, peer districts, and the state for 2008-09.
EPS’s average property valuation per student of $40,618 is third highest among its peer districts.
It is $1,743 higher than the state average of $38,875. EPS has a higher percentage of Hispanic
students than any other ethnic minority; at 21 percent, this is tied for second lowest among its
peer districts. Eldorado’s percent of students eligible for free or reduced price meals is higher
than the state and all of its peers.
1 Data from http://www.city-data.com/city/Eldorado-Oklahoma.html.
Eldorado Public Schools Executive Summary
Prismatic Services, Inc. Page 3
Exhibit 2
Demographics of EPS, Peer Districts, and State
2008-09
Ethnic Group
Entity
ADM
Caucasian
Black
Asian
Hispanic
Native
American
Average
Assessed
Property
Valuation Per
Student
Eligible
for
Free or
Reduced
Price
Meals
Eldorado 115.7 70% 4% 0% 21% 5% $40,618 78.5%
Blair 271.6 73% 3% 1% 17% 6% $83,925 55.0%
Duke 180.5 68% 1% 0% 27% 4% $55,193 59.2%
Felt 60.8 59% 0% 2% 39% 0% $21,196 72.9%
Olustee 173.4 56% 3% 1% 40% 1% $22,350 72.9%
Ryan 232.6 74% 3% 1% 21% 1% $24,161 71.4%
State 1,194.3 57% 11% 2% 11% 19% $38,875 56.3%
Source: Office of Accountability, Profiles Database
Exhibit 3 shows the ADM of EPS and its peer districts over the five year period between 2004-
05 and 2008-09. EPS’s ADM has decreased by 5.2 percent during this period. That represents the
second-lowest rate of decline among the peer districts.
Exhibit 3
EPS, Peer Districts, and State Student ADM Trends
ADM
Entity
2004-05
2005-06
2006-07 2007-08 2008-09
Percentage
Change
*Eldorado 122.0 123.1 117.2 109.2 115.7 (5.2%)
**Blair 303.2 307.1 282.3 266.6 271.6 (10.4%)
*Duke 187.0 206.0 201.9 190.3 180.5 (3.5%)
*Felt 88.4 81.9 82.6 74.2 60.8 (31.2%)
*Olustee 192.7 184.9 177.9 163.0 173.4 (10.0%)
*Ryan 268.0 266.9 250.9 243.1 232.6 (13.2%)
*Community Group H2 151.3 148.7 146.3 144.8 148.5 (1.9%)
**Community Group G1 303.2 352.6 346.0 348.0 339.6 12.0%
Source: Office of Accountability, Profiles Database
COMMENDATIONS
The Office of Accountability identified “exemplary” or “best practices” in Eldorado Public
Schools that led to 24 separate commendations. The Office of Accountability recommends that
other school districts throughout Oklahoma examine these exemplary programs and services to
see if they could be adapted to meet their local needs. The commendations are listed below and
explained in detail in each chapter.
Executive Summary Eldorado Public Schools
Page 4 Prismatic Services, Inc.
Chapter 1: MANAGEMENT, PERSONNEL, AND COMMUNICATIONS
The superintendent and board exemplify team collaboration in leading district improvements.
The Eldorado School Board and superintendent have a strong commitment to training, making
them well-prepared to lead the district.
The superintendent and board are commended for updating the district’s entire policy book.
Eldorado Public Schools has uniform processes to maintain the security of personnel records.
The superintendent and board have planned ahead to make accommodations to keep the district
running smoothly during the secretary’s maternity leave.
Chapter 2: INSTRUCTIONAL DELIVERY
EPS has implemented a mandatory after school tutoring program for students in grades five
through twelve.
EPS uses EPAS EXPLORE and PLAN data to support student career planning and to increase
student achievement.
Chapter 3: BUSINESS OPERATIONS
Eldorado Public Schools is commended on timely reports prepared by the superintendent that
keep board members and staff informed of anticipated state aid funding and the impact it will
have on operations.
EPS provides a secure location for district warrants waiting to be distributed, monies waiting to
be deposited, and for other valuables.
Eldorado Pubic Schools is commended for establishing policy for student activity funds and
communicating guidelines to staff.
Receiving substantially clean audit reports helps maintain EPS credibility among staff and the
community.
Chapter 4: FACILITIES USE AND MANAGEMENT
The superintendent and School Board successfully worked with the parents and other
constituents within the school district to forge a coalition which resulted in passing a much
needed bond initiative.
Eldorado Public Schools Executive Summary
Prismatic Services, Inc. Page 5
The elementary and junior/senior high school building has been updated with new air
conditioning systems within the past five years.
The maintenance on the roofing systems for the elementary and junior/senior high school
building and the vocational-agriculture building have been effective toward keeping those
systems watertight.
EPS employs sufficient custodial personnel to properly clean the district facilities.
EPS installed a new 18 camera high security monitoring system with digital data recording
capability on all cameras. This addition significantly improves the security posture of the school.
Chapter 5: SUPPORT SERVICES
The district is commended for implementing technology in its cafeteria operations.
EPS meal participation is commendable.
EPS successfully gained outside grant funding to target technology needs.
EPS is commended for acquiring SmartBoards for classroom use and for providing initial
professional development for the teachers who will be using them.
The district has used the resources of the Southwest Technology Center to keep its drivers
licensed and trained.
The Eldorado drivers exhibit concern and caring for all students in their charge and provide on-time
transportation services.
EPS is appropriately providing transportation to selected students who live within 1.5 miles of
school.
The district does a thorough job of controlling fuel cost.
RECOMMENDATIONS AND PROJECTED COSTS AND SAVINGS
A list of recommendations with their associated costs is provided in Exhibit 4. In each chapter,
implementation strategies and the estimates of fiscal impact follow each recommendation in this
report. The implementation section associated with each recommendation highlights the actions
necessary to achieve the proposed results. Many of the recommendations have no costs or
savings attached, but are designed to formalize, improve, and streamline operations. In some
cases, the consulting team has made recommendations that will likely generate savings for the
district, but in an effort to be conservative, no specific savings were estimated.
It must be understood that not all of the recommendations can be started at one time. The
consulting team did not want to place priorities by indicating which should be implemented
Executive Summary Eldorado Public Schools
Page 6 Prismatic Services, Inc.
immediately and which ones implemented later. It will be up to the district to decide which ones
to implement and the timelines for beginning implementation.
The Office of Accountability recommends that the EPS Board of Education ask district
administrators to review the recommendations, develop an implementation plan, and monitor its
progress. Office of Accountability staff is available to help implement the recommendations.
Exhibit 4
Summary of Costs and Savings by Recommendations
Estimated (Costs) or Savings
Recommendation 2011-12 2012-13 2013-14 2014-15 2015-16
Total Five-
Year
(Costs) or
Savings
Chapter 1 Management, Personnel, and
Communications
1 Develop a comprehensive
strategic plan for the district
and ensure that all parts of the
CLEP are included in the plan.
($1,500) $0 $0 $0 $0 ($1,500)
2 Embed accountability into
district operations so that all
district activities are aligned
with established district goals.
$0 $0 $0 $0 $0 $0
3 Revise time spent on
discussion during board
meetings to focus it on
decision making and answers
to board member questions,
instead of reiteration of
previously available
information.
$0 $0 $0 $0 $0 $0
4 Update the Board meeting
agenda format to incorporate a
consent agenda.
$0 $0 $0 $0 $0 $0
5 Commit a portion of board
meetings to reports on current
educational programs and
achievements, and to the
recognition of outstanding
accomplishments and
contributions.
$0 $0 $0 $0 $0 $0
6 Ensure that all policies that are
approved by the school board
clearly denote the date of the
board action and continue
annual review of policies and
procedures.
$0 $0 $0 $0 $0 $0
Eldorado Public Schools Executive Summary
Prismatic Services, Inc. Page 7
Estimated (Costs) or Savings
Recommendation 2010-11 2011-12 2012-13 2013-14 2014-15
Total Five-
Year
(Costs) or
Savings
7
Establish regular weekly
meetings for the
superintendent and principal to
discuss key educational topics,
plan for the district and
develop written policies and
procedures for each area of
responsibility assigned.
$0 $0 $0 $0 $0 $0
8
Create systematic processes
that provide support and
direction for all staff members.
$0 $0 $0 $0 $0 $0
9
Address the need for cross-training
and develop controls
for central support staff
responsibilities.
$0 $0 $0 $0 $0 $0
10
Develop a salary schedule for
non exempt employees and
establish a clear cut procedure
for staff to earn raises.
$0 $0 $0 $0 $0 $0
11
Develop job descriptions for
each position, explain them to
employees, and link them to
performance evaluations.
$0 $0 $0 $0 $0 $0
12
Expand the district’s approach
to professional development to
include regular training for all
staff based upon needs
assessments related to job
responsibilities and student
achievement.
$0 $0 $0 $0 $0 $0
13
Improve the EPS website as a
part of an overall public
communications strategy.
$0 $0 $0 $0 $0 $0
14
Develop a coordinated
volunteer program that
promotes parent and
community involvement in the
district’s schools.
$0 $0 $0 $0 $0 $0
Subtotal ($1,500) $0 $0 $0 $0 ($1,500)
Chapter 2 Instructional Delivery
1 Develop and implement grade
level curriculum pacing maps
in the core content areas based
upon Oklahoma PASS, testing
blueprints, and student data.
$0 $0 $0 $0 $0 $0
Executive Summary Eldorado Public Schools
Page 8 Prismatic Services, Inc.
Estimated (Costs) or Savings
Recommendation 2010-11 2011-12 2012-13 2013-14 2014-15
Total Five-
Year
(Costs) or
Savings
2 Implement an ongoing,
systematic process to
establish, monitor, and adjust
vertical alignment of
curriculum in core content
areas.
$0 $0 $0 $0 $0 $0
3 Provide training for all EPS
administrators and teachers on
disaggregating test data,
analyzing and interpreting test
data, integrating results-based
solutions into daily instruction,
remediation and intervention,
and creating and updating
curriculum and vertical
alignment maps.
$0 $0 $0 $0 $0 $0
4 Develop a long-range plan to
update and expand the
library/media center to better
serve the needs of the school
and community.
$0 $0 $0 $0 $0 $0
5 Develop a long-term
professional development plan
based upon the effective
schools research that drives
comprehensive school
improvement.
$0 $0 $0 $0 $0 $0
6 Provide training in school
improvement models that
increase the professional
expertise of administration and
teachers.
$0 $0 $0 $0 $0 $0
7 Create scheduled opportunities
for teachers to collaborate
regarding technology and soft-ware
use, the appropriate
applications for grade level
and content skills, and for
remediation and intervention.
$0 $0 $0 $0 $0 $0
8 Implement the district’s Gifted
and Talented program with
total compliance to the
adopted plan to ensure all
identified students are
appropriately tested and
served.
$0 $0 $0 $0 $0 $0
Eldorado Public Schools Executive Summary
Prismatic Services, Inc. Page 9
Estimated (Costs) or Savings
Recommendation 2010-11 2011-12 2012-13 2013-14 2014-15
Total Five-
Year
(Costs) or
Savings
9 Implement a consistent,
ongoing training program to
assist all teachers in designing
and delivering differentiated
instruction to mainstreamed
special education students.
$0 $0 $0 $0 $0 $0
10 Develop and implement a
counseling program for PreK
through 12th grade
incorporating state guidelines
and school counseling best
practices.
$0 $0 $0 $0 $0 $0
Subtotal $0 $0 $0 $0 $0 $0
Chapter 3 Business Operations
1 EPS should develop a payroll
reconciliation process to help
ensure that all changes needed
to employee payroll records
are made prior to running
payrolls.
$0 $0 $0 $0 $0 $0
2 Establish a budgetary process
that is timely, easily
understood, and
communicated throughout the
district.
$0 $0 $0 $0 $0 $0
3 Expand the current monthly
financial reports to include
types of revenues and
expenditures, a comparison
with the previous year’s
financial information, and a
more detailed treasurer’s
report.
$0 $0 $0 $0 $0 $0
4 Revise the district general
fund balance policy to
establish a minimum fund
balance, provide guidance on
to achieve the minimum
balance, and require fund
balance status reports to the
board.
$0 $0 $0 $0 $0 $0
5 Develop desk procedures for
the important duties performed
by the treasurer and
encumbrance clerk, and the
two should be cross-trained in
each other’s duties.
$0 $0 $0 $0 $0 $0
Executive Summary Eldorado Public Schools
Page 10 Prismatic Services, Inc.
Estimated (Costs) or Savings
Recommendation 2010-11 2011-12 2012-13 2013-14 2014-15
Total Five-
Year
(Costs) or
Savings
6 Revise the process for
deducting the cost of lunches
from employees’ pay warrants
so that monies deducted from
pay warrants of employees are
deposited directly into the
child nutrition account.
$0 $0 $0 $0 $0 $0
7
Establish selection criteria for
the local banking services
contract and solicit proposals.
$0 $0 $0 $0 $0 $0
8 Negotiate with the district’s
bank to provide a sweep of
idle cash balances into higher-yielding
investments on an
overnight basis and require a
sweep account in future bids
for banking services.
$0 $0 $0 $0 $0 $0
9 Develop and implement a
policy outlining the duties
surrounding textbook issuance
and maintenance.
$0 $0 $0 $0 $0 $0
10 Track fixed assets acquired
with district funds and develop
fixed asset policies.
$0 $0 $0 $0 $0 $0
11 Establish and implement a
policy on direct deposit for
pay warrants.
$0 $0 $0 $0 $0 $0
12 The EPS treasurer should
review the encumbrance
clerk’s bank reconciliations
and the encumbrance clerk
should review the treasure’s
bank reconciliations.
$0 $0 $0 $0 $0 $0
13 Develop a policy that requires
a signature on receipts for all
materials and services
rendered before payments are
made to vendors.
$0 $0 $0 $0 $0 $0
14 Develop a policy requiring
competitive proposals for
professional independent
auditing services at a
designated interval of at least
every five years.
$0 $0 $0 $0 $0 $0
Subtotal $0 $0 $0 $0 $0 $0
Eldorado Public Schools Executive Summary
Prismatic Services, Inc. Page 11
Estimated (Costs) or Savings
Recommendation 2010-11 2011-12 2012-13 2013-14 2014-15
Total Five-
Year
(Costs) or
Savings
Chapter 4 Facilities Use and
Management
1 Develop a long-range facilities
master plan and a capital
improvement program with
specific timelines to address
facility improvement needs.
$0 $0 $0 $0 $0 $0
2 Replace existing T-12 lights
with T-8 energy saving lights.
($5,729) ($5,729) ($5,729) ($5,729) ($5,729) ($28,645)
3 Implement a formalized
maintenance program that
includes a documented work
order management and
preventive maintenance.
$0 $0 $0 $0 $0 $0
4 Paint the cafeteria building. $0 $0 $0 $0 $0 $0
5 Improve electrical safety
throughout the district.
$0 $0 $0 $0 $0 $0
6 Implement an energy
management program (EMP)
to conserve energy.
$600 $600 $600 $600 $600 $3,000
7 Conduct a fire safety
inspection and correct
deficiencies found.
$0 $0 $0 $0 $0 $0
8 Conduct an electrical safety
inspection and correct
deficiencies found.
$0 $0 $0 $0 $0 $0
9 Develop a planned safety
program that includes training,
inspection, and certification of
life safety equipment as
required by applicable codes.
The district should also obtain
an AED and conduct training
to ensure all teachers, staff,
and high school
upperclassmen are competent
in the application and use of
the AED.
$0 $0 $0 $0 $0 $0
10 Create an up-to-date district-wide
crisis management plan.
$0 $0 $0 $0 $0 $0
11 Obtain access keys to the
storm shelter and place them
with both the superintendent
and the principal.
$0 $0 $0 $0 $0 $0
Subtotal ($5,129) ($5,129) ($5,129) ($5,129) ($5,129) ($25,645)
Executive Summary Eldorado Public Schools
Page 12 Prismatic Services, Inc.
Estimated (Costs) or Savings
Recommendation 2010-11 2011-12 2012-13 2013-14 2014-15
Total Five-
Year
(Costs) or
Savings
Chapter 5 Support Services
Child Nutrition
1 Sponsor a Summer Food
Service Program for children.
$250 $250 $250 $250 $250 $1,250
2 Improve the accuracy of the
meal count procedure.
$919 $919 $919 $919 $919 $4,595
3 Improve and enhance the
financial operations of the
child nutrition program.
$500 $3,750 $5,750 $7,750 $7,750 $25,500
4 Develop and implement a
staffing plan consistent with
state staffing guidelines.
$2,538 $2,538 $2,538 $2,538 $2,538 $12,690
5 Implement menu planning
software.
($1,500) ($1,500) ($1,500) ($1,500) ($1,500) ($7,500)
6 Allocate a percentage of the
annual child nutrition budget
for equipment replacement.
($529) ($529) ($529) ($529) ($529) ($2,645)
7 Schedule recess before lunch. $0 $0 $0 $0 $0 $0
8 Close the campus to all
students during the school day,
including the lunch period.
$1,397 $1,397 $1,397 $1,397 $1,397 $6,985
9 Include funds for constructing
or renovating the child
nutrition facilities in future
bond initiatives.
$0 $0 $0 $0 $0 $0
Technology
10 Improve the technology plan
with the recommended
suggestions.
$0 $0 $0 $0 $0 $0
11 The district should create a
part-time, non teaching
technology coordinator
position.
($10,000) ($10,000) ($10,000) ($10,000) ($10,000) ($50,000)
12 Develop and implement a
disaster recovery plan.
$0 $0 $0 $0 $0 $0
13 Develop a software needs
assessment and adoption
process.
$0 $0 $0 $0 $0 $0
14 Continue to update and expand
the district website.
$0 $0 $0 $0 $0 $0
15 Develop a curriculum for
technology that implements
Priority Academic Student
Skills (PASS) standards for
instructional technology.
$0 $0 $0 $0 $0 $0
Eldorado Public Schools Executive Summary
Prismatic Services, Inc. Page 13
Estimated (Costs) or Savings
Recommendation 2010-11 2011-12 2012-13 2013-14 2014-15
Total Five-
Year
(Costs) or
Savings
16 Develop procedures to assess
technology use and
satisfaction, with a goal of
high utilization.
$0 $0 $0 $0 $0 $0
17 Develop a disposal plan for
obsolete equipment.
$0 $0 $0 $0 $0 $0
18 Develop a training program
that focuses on increasing
basic technology skills and
integrating technology into the
instructional program.
$0 $0 $0 $0 $0 $0
Transportation
19 Review all turn-arounds on
private property.
$0 $0 $0 $0 $0 $0
20 Review compensation of
substitute drivers.
$0 $0 $0 $0 $0 $0
21 EPS should track their bus
maintenance.
$0 $0 $0 $0 $0 $0
22 Address bus safety problems
in a timely fashion.
($300) ($100) ($100) ($100) ($100) ($700)
23 Install sufficient lighting at the
bus barn to enable drivers to
carry-out a complete and
thorough Pre-Trip inspection.
($500) $0 $0 $0 $0 ($500)
24 Conduct a thorough cleaning
and safety review.
$0 $0 $0 $0 $0 $0
Subtotal ($7,225) ($3,275) ($1,275) $725 $725 ($10,325)
Total savings $6,204 $9,454 $11,454 $13,454 $13,454 $54,020
Total costs ($20,058) ($17,858) ($17,858) ($17,858) ($17,858) ($91,490)
Total net savings and costs ($13,854) ($8,404) ($6,404) ($4,404) ($4,404) ($37,470)
Chapter 1:
Management, Personnel, and
Communications
Chapter 1
Management, Personnel, and Communications
This chapter addresses the management, personnel, and communications of Eldorado Public
Schools (EPS) in the following sections:
A. Management and Organization
B. Personnel Management
C. Communications and Community Involvement
The organization and management of a school district involves cooperation between elected
members of the board of education and staff of the district. The board’s role is to set goals and
objectives for the district in both instructional and operational areas, determine the policies by
which the district will be governed, approve the plans to implement those policies, provide the
funding sources necessary to carry out the plans, and evaluate the results of the plans.
Once the goals and objectives of the district are adopted by the board, it is the responsibility of
the superintendent and staff to establish policies and procedures to achieve these end results.
This achievement involves the hiring and retention of employees as well as ongoing
communication with the community to ensure an understanding of those goals and the district’s
efforts to accomplish them.
Background
Eldorado Public Schools are located in Jackson County, Oklahoma, a county with a total land
area of 803 square miles. The district is located approximately 85 miles from Lawton in the
southwestern corner of Oklahoma. In July 2009, the city of Eldorado’s population was recorded
at 455, having decreased since 2000 by nearly ten percent. The EPS student body is dispersed
across a total land area of 181 square miles within Jackson County with .6 students per square
mile.
Demographic data reflect the following information regarding Eldorado compared to the
Oklahoma state average:
• a lower median household income;
• a significantly lower median house value;
• a lower median household income than the state average;
• a higher percentage of residents with income below the poverty level and with income below
50 percent of the poverty level; and
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• a significantly lower percentage of residents with a bachelor's degree or higher.1
Demographics
EPS has one elementary school serving early childhood through eighth grade and one high
school serving grades 9 through 12. Exhibit 1-1 shows average daily membership (ADM),
ethnicity, and eligibility for free or reduced price meals for EPS and each of its schools for 2008-
2009.
Exhibit 1-1
EPS Student Enrollment and Socioeconomic Characteristics
2008-09
School
Grade
Span
Fall
Enrollment Caucasian Black Asian Hispanic
Native
American
Eligible
For
Free or
Reduced
Price
Meals
Elementary
School EC-8 93 71% 5% 0% 18% 5% 76.0%
High School 9-12 28 68% 0% 0% 29% 4% 86.0%
EPS Totals EC-12 121 70% 4% 0% 21% 5% 79.0%
Source: Office of Accountability, Profiles Database
Exhibit 1-2 shows demographic information for EPS, peer districts, and the state for 2008-09.
EPS’s average property valuation per student of $40,618 is higher than all but two of its peer
districts, its community group, and the state. It is a little under $2,000 more than the state
average of $38,875. EPS has the highest percentage of Native American students among its peers
with the exception of Blair. Eldorado’s percent of students eligible for free or reduced price
meals is higher than the state, the community group, and all of its peers.
1 Data from http://www.city-data.com/city/Eldorado-Oklahoma.html.
Eldorado Public Schools Management, Personnel, and Communications
Exhibit 1-2
Demographics of EPS, Peer Districts, and State
2008-09
Ethnic Group
Entity
ADM
Caucasian
Black
Asian
Hispanic
Native
American
Average
Assessed
Property
Valuation Per
Student
Eligible
for
Free or
Reduced
Price
Meals
Eldorado 115.7 70% 4% 0% 21% 5% $40,618 78.5%
Blair 271.6 73% 3% 1% 17% 6% $83,925 55.0%
Duke 180.5 68% 1% 0% 27% 4% $55,193 59.2%
Felt 60.8 59% 0% 2% 39% 0% $21,196 72.9%
Olustee 173.4 56% 3% 1% 40% 1% $22,350 72.9%
Ryan 232.6 74% 3% 1% 21% 1% $24,161 71.4%
Community
Group H2
148.5
51% 3% 0% 6% 39%
$39,900 76.1%
State 1,194.3 57% 11% 2% 11% 19% $38,875 56.3%
Source: Office of Accountability, Profiles Database
*Not Available
Exhibit 1-3 shows the ADM of EPS and its peer districts over the five year period between
2004-05 and 2008-09. EPS’s ADM has decreased by 5.2 percent during this period. That is more
than Community Group H2’s rate of decrease of 1.9 percent, but less than all but one of the peer
districts, Duke. Blair is the only district chosen as a peer that is in a different Community Group
G1. Whereas the ADM in Community Group H2 and all peer districts have decreased during
those five years, the ADM in Community Group G1 has risen.
Exhibit 1-3
EPS, Peer Districts, and State Student ADM Trends
ADM
Entity
2004-05
2005-06
2006-07 2007-08 2008-09
Percentage
Change
*Eldorado 122.0 123.1 117.2 109.2 115.7 (5.2%)
**Blair 303.2 307.1 282.3 266.6 271.6 (10.4%)
*Duke 187.0 206.0 201.9 190.3 180.5 (3.5%)
*Felt 88.4 81.9 82.6 74.2 60.8 (31.2%)
*Olustee 192.7 184.9 177.9 163.0 173.4 (10.0%)
*Ryan 268.0 266.9 250.9 243.1 232.6 (13.2%)
*Community Group H2 151.3 148.7 146.3 144.8 148.5 (1.9%)
**Community Group G1 303.2 352.6 346.0 348.0 339.6 12.0%
Source: Office of Accountability, Profiles Database
EPS has experienced a number of changes in enrollment among ethnic groups over the past five
years. Caucasian student enrollment has decreased by almost seven percent. Black enrollment
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Management, Personnel, and Communications Eldorado Public Schools
has decreased by 20 percent. Native American enrollment has decreased by 50 percent and Asian
enrollment has decreased from one percent to zero percent. During this same period, average
assessed property valuation per student increased by 9.5 percent. The percentage of students
eligible for free or reduced priced meals decreased less than one percentage point (Exhibit 1-4).
Exhibit 1-4
Change in Demographics of EPS
2005-09
Ethnic Group
School
Year
ADM
Caucasian
Black
Asian
Hispanic
Native
American
Average
Assessed
Property
Valuation
Per
Student
Eligible
for
Free or
Reduced
Price
Meals
2004-05 122.0 65% 5% 1% 19% 10% $37,106 78.7%
2005-06 123.1 67% 5% 2% 22% 4% $36,749 78.8%
2006-07 117.2 64% 6% 2% 26% 3% $38,657 73.4%
2007-08 109.2 64% 5% 2% 25% 5% $42,081 74.2%
2008-09 115.7 70% 4% 0% 21% 5% $40,618 78.5%
Change (5.2%) 7.7% (20%) (100%) 10.5% (50%) $3,512 or
9.5%
(0.2%)
Source: Office of Accountability, Profiles Database
School Board Governance
Oklahoma state education laws, as codified in the Oklahoma School Code (OSC) and district
policies, establish the powers and responsibilities of the district board of education and the
superintendent. OSC contains 12 chapters subdivided first by topic and then sections. Each
section provides legal guidance for school district governance and operations (Exhibit 1-5).
OSC Ch. 1, Art. V, Section 54 states, “Every school district shall be a body corporate and shall
possess the usual powers of a corporation.” OSC Ch. 1, Art. V, Section 55 states, “The governing
board of each school district in Oklahoma is hereby designated and shall hereafter be known as
the board of education of such district.”
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Exhibit 1-5
Oklahoma School Code Chapters, Articles, and Sections
Chapter No. – Title Articles Sections
1 - Oklahoma School Code I-XXIV 1-517
2 - Administration I-VII 518-521
3 - Bonds I-II 522-619
4 - Funds And Finance I-V 620-707
5 - Elections And Ethics I-II 708-727
6 - Personnel I-V 728-802
7 - Students I-III 803-841
8 - Instruction I-IX 842-919
9 - Facilities And Equipment I-VII 920-1005
10 - Career And Technology Education I 1006-1016
11 - Transportation I-III 1017-1027
12 - Safety And Security I-VII 1028-1062
Appendix A Appropriation Bills
Relating to Education
Appendix B Senate Bill No. 1114
Appendix C Amendments,
Repeals,
and New Sections
Appendix D Table of Statutes
Index
Source: Oklahoma School Law Book, 2009
OSC Ch. 1, Art. V, Section 68 describes the powers and duties of the board of education. It
covers all activities related to operating public school districts. Key powers and duties prescribed
in OSC include election of officers, establishing board policies, building and operating schools
and related facilities, and contracting for an annual audit of all district funds.
OSC Ch. 1, Art. V, Section 56 addresses the size and election of School Boards in Oklahoma,
and Section 77 provides a description of the required officers for School Boards. Adhering to
these sections, the EPS board consists of five elected members, all serving staggered five-year
terms (Exhibit 1-6).
After a recent controversial vote about annexation, three board members and the last
superintendent left. Consequently, the EPS board is comprised largely of new board members.
One, Tim Springs, however, has served on the board for 32 years, lending experience and
guidance to new board members.
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Exhibit 1-6
EPS Board Members
Board Member
Board Position
Year of
Election or
Appointment
Term
Expires
*Jackie Kenmore President 2010 2013
**Bryan Adams Vice-President 2009 2011
Tim Springs Clerk 2009 2014
*Kevin Hill Member 2010 2015
*Cory Robinson Member 2007 2012
Source: Office of the Superintendent, September 2010
*New
**Appointed
The state sets a date for board elections to be held each year in February. At the first regular,
special, or emergency meeting after the annual School Board election and certification of
election of new members, the EPS board organizes itself by electing officers. OSC Ch. 1, Art. V,
Sections 78, 79, and 80 list the duties of each officer of the board of education. The board must
also elect a clerk, who may or may not be a member of the board.
Board of Education Meetings
The board meets on the second Thursday of every month in the Eldorado Superintendent’s
Office. Times of meetings from November through April are at 7:00 p.m. During the months of
May and July through October, meetings are held at 8:00 p.m. In the month of June, the board
holds two meetings largely for budget purposes: one on the second Thursday of the month; and
one on the last Monday of the month. Both are scheduled at 8:00 a.m., although they have talked
about eliminating one of the June meetings. The meeting times vary to accommodate board
members who need to be in the fields during planting and harvesting.
The meeting place and time may be changed with the majority of the board agreeing. The board
holds special meetings as needed. Board members receive their agendas and supporting
information in advance of the meeting, usually between one and two days prior to the meeting.
Although all board members report that the accompanying packet of information is extensive,
they all stated that the time they had to review the materials was sufficient for them to be
prepared for the meeting.
Oklahoma statutes and EPS board policy require all board meetings to be held in accordance
with the Oklahoma Open Meeting Act (OOMA). Title 25 of Oklahoma Statutes Sections 301
through 314 contains the OOMA (Exhibit 1-7). According to section 302 of OOMA, it is the
public policy of the State of Oklahoma to encourage and facilitate an informed citizenry’s
understanding of governmental processes and problems.
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Exhibit 1-7
Oklahoma Open Meeting Act Sections
Section Section subject
301 Citation
302 Public policy
303 Times and places — Advance Notice
304 Definitions
305 Recording of votes
306 Circumvention of act — Teleconferences excepted
307 Executive sessions
307.1 Teleconference Exceptions
308
Meeting between Governor and majority of members of public
body
309 Legislature
310 Legislative committee members attending executive sessions
311 Public bodies — Notice
312 Minutes of meetings — Recording of Proceedings
313 Actions taken in willful violation of act
314 Violations — Misdemeanor — Penalty
Source: Title 25, Oklahoma School Code, as amended,
Forty-Ninth Oklahoma Legislature, First Regular Session, 2003
All public boards of education are required to adhere to the OOMA. Section 307 of OOMA
outlines requirements for executive sessions of School Boards. Violations of OOMA could lead
to members facing criminal prosecution. Accordingly, the EPS School Board convenes executive
sessions only for specific purposes (Exhibit 1-8).
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Exhibit 1-8
Specific Purposes of School Board Executive
Sessions In Accordance with Section 307 of
The Oklahoma Open Meeting Act
Item Description
1 Discussing the employment, hiring, appointment, promotion, demotion, disciplining, or
resignation of any individual salaried public officer or employee;
2 Discussing negotiations concerning employees and representatives of employee groups;
3 Discussing the purchase or appraisal of real property;
4 Confidential communications between a public body and its attorney concerning a pending
investigation, claim, or action, if the public body, with the advice of its attorney, determines
that disclosure will seriously impair the ability of the public body to process the claim or
conduct a pending investigation, litigation, or proceeding in the public interest;
5 Permitting district boards of education to hear evidence and discuss the expulsion or
suspension of a student when requested by the student involved or the student’s parent,
attorney, or legal guardian;
6 Discussing matters involving a specific handicapped child;
7 Discussing any matter where disclosure of information would violate confidentiality
requirements of state or federal law;
8 Engaging in deliberations or rendering a final or intermediate decision in an individual
proceeding pursuant to Article II of the Administrative Procedures Act; or
9 Discussing the following:
a. the investigation of a plan or scheme to commit an act of terrorism,
b. assessments of the vulnerability of government facilities or public improvements to an act
of terrorism,
c. plans for deterrence or prevention of or protection from an act of terrorism,
d. plans for response or remediation after an act of terrorism,
e. information technology of the public body but only if the discussion specifically
identifies:
(1) design or functional schematics that demonstrate the relationship or connections
between devices or systems,
(2) system configuration information,
(3) security monitoring and response equipment placement and configuration,
(4) specific location or placement of systems, components, or devices,
(5) system identification numbers, names, or connecting circuits,
(6) business continuity and disaster planning, or response plans, or
(7) investigation information directly related to security penetrations or denial of services
f. the investigation of an act of terrorism that has already been committed.
Source: Title 25, Oklahoma School Code, as amended, Forty-Ninth Oklahoma Legislature,
First Regular Session, 2003
The EPS agenda notes executive sessions and contains sufficient information for the public to be
aware of an upcoming executive session. The agenda identifies the items of business and
purposes of the executive session, and states specifically the appropriately authorized reason for
the executive session.
A majority vote of a quorum of the members present must authorize all executive sessions.
Except for executive session topics that are required to be confidential by state or federal law,
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any vote or action on any item of business considered in an executive session is taken in the
public session of the board meeting. Each member’s vote must be public and recorded.
A. MANAGEMENT AND ORGANIZATION
A suitable central office organizational structure is essential to the efficient and effective
delivery of services in a school district. Efficient central office organizational structures have the
appropriate spans of control for effective leadership. Lines of authority should be clearly defined
and also shown in the district’s organizational charts. Effective central office organizational
structures encourage communication at all levels. The superintendent of a school district serves
as the chief executive officer and is the person responsible for policy implementation and the
day-to-day operation of the school district.
FINDING 1-1
Interviews with School Board members and Dr. Harold Hayes, the superintendent, reveal a
sincere sense of mutual respect and partnership in working together to improve the district.
Comments from other district staff reinforced the exceptionally effective working relationship
the superintendent and board have. This is Dr. Hayes’s second year in EPS. Despite his short
tenure, staff universally reported that he had made a positive impact on the schools. Several
stated that they had lived in the community for decades and had never seen the schools improve
so much and so quickly. Many noted that the district has made tremendous positive strides within
the past two years under the board and superintendent’s leadership.
COMMENDATION
The superintendent and board exemplify team collaboration in leading district
improvements.
FINDING 1-2
The district’s positive direction and the support of the staff and community are extremely
positive first steps for EPS to build upon. Board members and the superintendent do not work
together to set annual plans. However, some board members said that would be a good strategy
for ensuring continuous improvement. Having written measurable goals and objectives to guide
EPS priorities would enable them to build on their current success. The consensus among most
staff interviewed was that there is no district planning except some facility planning that
occurred before the recent passage of a bond.
Critical areas that would benefit from purposeful district planning include curriculum planning
and professional development to support specific needs for improved teacher skills and student
achievement. The superintendent stated that he believed instructional leadership is the role and
responsibility of the school principal. That strong support of school leadership is commendable;
however, there are elements of planning that must take place at the district level to support what
happens in EPS classrooms. Budgeting time in the school calendar and fiscal resources for
professional development are essential elements of planning that occur at the district level.
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Concerns related to teaching and learning should be identified through regular analysis of student
performance data. From that information, professional development needs can be identified so as
to guide allocation of district resources. The principal reported that she includes last year’s
classroom performance and achievement data in handbooks to help teachers understand their
instructional strengths and student needs. However, without planning at the district level to
support that information, the principal is limited in her instructional leadership responsibilities.
There is also no evidence that teachers understand or have been trained to use data as a basis for
instructional change.
The district has all parts of its Comprehensive Local Educational Plan (CLEP). Chapter I, Article
III of the Oklahoma School Code, Section 31 states that:
As part of the requirements for receiving accreditation by the State Board of
Education, each school district board of education shall adopt a Comprehensive
Local Education Plan once every six (6) years. The plan at a minimum shall
contain the following:
• a school improvement plan,
• a capital improvement plan,
• an alternative education plan, and
• a reading sufficiency plan.
The most recent student performance data contained in the 2010-2015 School Improvement Plan
portion of the EPS CLEP was from 2007-2008. The law states that, “Each school improvement
plan shall include stated goals that clearly delineate educational expectations, and shall be
annually monitored and updated as necessary. The plan shall also include a specific program of
improvement through academic skill reinforcement and/or remediation.” It is essential to update
student performance data when new data is available to be able to improve academic skills
through reinforcement and/or remediation. Additionally, the most recent content updates in the
CLEP documents appear to be from 2006-2007 for both science and social studies. One CLEP
goal relates to parents being involved in selecting district goals with records being kept in the
superintendent’s office. When asked about that, the superintendent stated that they would be part
of the K20 grant with those records being maintained in the principal’s office.
Many school districts across the country are now adopting a “Balanced Scorecard” approach to
strategic planning. The process benefits an organization by tying its vision of the future with
sound business practices, explicit expected employee behaviors, and daily operations that will
achieve desired results. Using the plan, decisions are clearly tied to priorities, related actions, and
employee/community satisfaction. It focuses actions on data, efficiency, prioritized initiatives,
improved communications, and a purposeful connection between the budget and goal
achievement. Exhibit 1-9 shows the process.
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Exhibit 1-9
Balanced Scorecard Logic
Source: Balanced Scorecard Institute,2 September 2008
The nine critical elements of the Balanced Scorecard approach outlined in Exhibit 1-10 are
common to other approaches of strategic planning as well.
2 http://www.balancedscorecard.org/BSCResources/TheNineStepstoSuccess/tabid/58/Default.aspx
Management, Personnel, and Communications Eldorado Public Schools
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Exhibit 1-10
Steps in Creating a Balanced Scorecard Approach to Strategic Improvement
Step One: Assess the district’s Mission and Vision. This process is similar to the SWOT process
used by the Oklahoma State School Boards Association: Identifying the district’s
Strengths, Weaknesses, Opportunities, and Threats.
Step Two: Identify desired results, district values, and perspectives of district and community
stakeholders in a communications workshop.
Step Three: Use elements from Steps 1 and 2 to create Strategic Objectives for the entire district.
Step Four: Create a Strategy Map that links cause and effect and shows how the district uses the plan
to address the identified needs and perspectives of its employees and community.
Step Five: Develop specific performance measures for each of the Strategic Objectives. This activity
also includes identifying specific targets, baseline data currently available or needed, and
benchmarking data that provides evidence of progress throughout the plan’s
implementation.
Step Six: Identify Strategic Initiatives for each of the Strategic Objectives. To ensure that each is
addressed, assign accountability for each to specific staff members and connect to “data
definition tables.”
Step Seven: Begin the implementation process. The Balanced Scorecard Institute uses automation for
quick, easy access to data for those responsible for each task.
Step Eight: Replicate the district-wide scorecard in support unit scorecards, and then team and
individual scorecards for accountability, alignment, and results throughout the
organization. This process translates daily work into goal achievement that is tied to the
district’s vision. At every level, people are responsible for specific performance
measures.
Step Nine: Evaluate scorecards to inform the district of the effectiveness of its strategies, the
appropriateness of selected performance measures, the desired links between budgetary
decisions and district strategies, and changes in the environment.
Source: Adapted from the Balanced Scorecard Institute,3 September 2008
The National School Board Association website4 also provides tools to assist in developing
strategic plans.
RECOMMENDATION
Develop a comprehensive strategic plan for the district and ensure that all parts of the
CLEP are included in the plan.
3 http://www.balancedscorecard.org/BSCResources/TheNineStepstoSuccess/tabid/58/Default.aspx
4 http://www.nsba.org/sbot/toolkit/spt.html
Eldorado Public Schools Management, Personnel, and Communications
Having all parts of the CLEP together will enable the district to compile relevant data for its own
purposes, as well as for planning and state reporting. The superintendent should work with the
board and administrative team to research a strategic planning process. The team should use the
selected process to develop a comprehensive strategic plan. The strategic plan should clearly
state the organization’s mission and set goals and objectives for EPS students, identify explicit
measurements for monitoring progress, and assign responsibility to individuals or groups. Once
it is board approved, EPS leaders should share the plan with the staff and community. It should
become the primary guide for making decisions and policies, as well as allocating resources. It
should be aligned with state CLEP requirements and meet their timeline requirements. Beyond
this, EPS should aspire to be broader in scope than simply complying with CLEP requirements.
Actually integrating all district goals into the intended single comprehensive plan enables district
staff to unite all actions to improve the district as a whole. This would better ensure that goals are
focused and achieved. As part of the plan the district should examine an array of district data
beyond those required by law and address problems the data reveal. The plan should assign
responsibility and dates of completion for tasks with interim benchmarks. When the website is
up, the CLEP should be available on it.
The strategic planning process is an excellent opportunity for the district to solicit input from
staff and the community. Also, having the principal as a key player in this planning would be a
solid training foundation for the principal to become superintendent when Dr. Hayes retires.
The National School Boards Association (NSBA) advises that for outreach in planning, a school
district should:
• Connect with all community members.
• Gather community perceptions about district issues.
• Use collected data to reexamine their long-term goals and strategic plans.
The superintendent should ensure that the process for developing the district’s comprehensive
strategic plan unites the entire staff toward reaching district goals. He should require regular use
of improvement plans with due dates for identified activities, scheduled reports to the board, and
progress reports in administrative meetings.
Another choice is to contract with the Oklahoma State School Boards Association (OSSBA) to
guide them in the first steps. They offer services according to what districts want them to do with
costs determined accordingly. OSSBA will either do all of the work of developing the plan for
the district or train district representatives.
FISCAL IMPACT
This recommendation can be implemented with existing resources if the district chooses to do it
with employees and community members. If it opts to contract with OSSBA, OSSBA staff
estimates it will cost between $1,500 and $5,000. Those costs are based on other districts’
experiences and the level of support and assistance desired. The minimum estimated cost of
$1,500 for OSSBA to train the principal to lead the planning process is used in this fiscal impact
estimate.
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Recommendation 2010-11 2011-12 2012-13 2013-14 2014-15
Develop a district
comprehensive strategic
plan
($1,500) $0 $0 $0 $0
FINDING 1-3
A review of district records and conversations with board members reveal that all board
members have attended numerous hours of state training. Exhibit 1-11 shows the hours that each
board member has accumulated since election and/or re-election. It shows that even the two
newest members have earned more than half of the points required by law. Dr. Hayes arranged a
whole board workshop on Superintendent-Board relations last year and has another scheduled
later this year. All board members had positive comments about the benefits of the training to
them individually and the board as a whole. Dr. Hayes plans to ask the board for input on the
topic of this year’s training at the next scheduled board meeting.
Exhibit 1-11
Board Member Continuing Education Points
Board Member
New
Points
Total
Points
Required
Date
Elected or
Appointed
Term
Expires
Jackie Kenmore (New) 2010 2013
Bryan Adams (Appointed) 2009 2011
Tim Springs (Incumbent) 2009 2014
Kevin Hill (New) 12 12 2010 2015
Cory Robinson (New) 2007 2012
Source: EPS Records, October 2010
For five-member boards OSC requires that board members receive a prescribed number of hours
of instruction within 15 months of either being elected or re-elected. Chapter 1, OSC, Article V,
Section 57, paragraphs A and B state:
A. Each School Board member shall “within fifteen (15) months of election or
appointment as a member of the district board of education” complete “at least
twelve (12) hours of instruction on education issues, including school finance,
Oklahoma education laws, and ethics, duties and responsibilities of district board
of education members.”
B. An incumbent “shall not be required to comply with the provisions of
subsection A of this section but shall be required to…complete six (6) hours of
instruction within fifteen (15) months following his or her election emphasizing
changes in school law, particularly changes in the areas set forth in subsection A
of this section.”
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Additional requirements are described in Chapter 1, OSC, Article V, paragraph A regarding
continuing education hours needed for all board members depending upon their term of office.
Section 58 Survey results in Exhibit 1-12 show that parents and staff largely agree that board
members know and understand the educational needs of the district.
Exhibit 1-12
EPS Survey Results
Survey
Group Survey Statement Agree
No
Opinion Disagree
Staff The School Board understands the needs
of the district. 82% 18% 0%
Parents School Board Members know and
understand the educational needs of the
district
83% 17% 0%
Source: Prismatic Survey Results, September 2010
COMMENDATION
The Eldorado School Board and superintendent have a strong commitment to training,
making them well-prepared to lead the district.
FINDING 1-4
The district currently has few accountability systems in place. As noted previously, goals for
student achievement, the distribution of resources, and development of timelines would help to
ensure progress. Examples of areas in which accountability could be improved throughout the
district include:
• training beyond bloodborne pathogens and CPR to include offerings that would improve job-related
skills of both certified and support employees;
• the availability of job descriptions to help staff understand expectations and upon which
evaluations can be concretely based;
• curricular planning, formal discussion, and a cohesive district-level plan to improve teaching
and learning;
• training for the child nutrition director to supplement the existing training manual, which is
not comprehensive in explaining all job responsibilities.
RECOMMENDATION
Embed accountability into district operations so that all district activities are aligned with
established district goals.
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The saying, “What gets measured gets done,” should be a guiding principle behind district
operations regardless of district size. When people know that there will be follow-up after they
are assigned tasks, they act. When they know the specific expectations for their work and that
they will be held accountable in regular evaluations, they deliver. Accountability should not be
viewed as a system of negative reinforcement, but rather as a way to make clear what one is to
do, how one should do it according to district procedures, and that there are both positive and
negative repercussions for meeting or failing to meet expectations. It ensures consistency. The
entire premise underlying No Child Left Behind is to increase accountability for results in
schools. Douglas B. Reeves’s Accountability for Learning explains how to make accountability a
constructive decision making process that improves teaching, learning, and leadership.
The superintendent and board should examine recommendations in this performance review and
identify all areas lacking accountability. They should direct staff to develop procedures,
measurements, guidelines, and reporting schedules to the board. This will ensure that
expectations are clear, periodic reviews are conducted, and consequences—both positive and
negative—occur. The board could consider adding incentives to the superintendent’s contract for
improving test scores, as a method to emphasize a district focus on student achievement. The
consulting team suggests beginning with job descriptions since they cross all areas investigated
in this report.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
FINDING 1-5
Interview participants and board meeting minutes reveal that board meetings often last between
two and five hours. Several staff members who attend live at least an hour away as well. Half of
the year, meetings also start at 8 p.m. Lengthy meetings that start that late could result in hasty
decisions on substantive issues made by tired board members.
Board members receive comprehensive background packets of material to ensure that their
decisions are well informed. The board indicated they value receiving the wealth of information
contained in these packets. Apparently part of the reason for lengthy meetings, though, is that
much of the time spent during the meetings reiterates background packet information.
Re-thinking the way that time is spent during board meetings so that information is not repeated,
but only pertinent questions are answered, would better focus time on deliberation of critical
issues. Meeting times could then be reduced to at most one to two hours. Another possible way
to expedite meetings would be to hold them early in the morning so that the school schedule
would help focus discussion.
RECOMMENDATION
Revise time spent on discussion during board meetings to focus it on decision making and
answers to board member questions, instead of reiteration of previously available
information.
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District leaders should ensure that reports at board meetings add to, instead of reiterate,
information previously provided to the board so that the board can focus more on its decision
making role.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
FINDING 1-6
The School Board does not use a consent agenda. A review of selected board agendas and
minutes show that some items that are similar in nature such as some financial items are
consolidated into one action unless a board member requests that one is pulled for discussion.
There are, however, many other items that are similar, but routine in nature, that are voted on as
individual items. This consumes board time, possibly detracting from time available for deeper
discussion of more substantive issues.
The sample board meeting agenda format provided in the OSSBA handbook consolidates matters
of a routine nature, yielding an agenda that is more clear, concise, and easily understood. Exhibit
1-13 provides an excerpt sample format. According to an OSSBA staff member, many
Oklahoma boards have gone to consent agendas because they “expedite meetings and eliminate
the micro-management issue.”
Exhibit 1-13
School Board Meeting Agenda Format for School Board Members and Administrators
Agenda Item
• Call to order and recording of members present and absent
• Consent Agenda, including the minutes, monthly financial and treasurer’s reports, and acceptance
of donations
• Consent Agenda approved by one vote unless any Board Member desires to have a separate vote
on any or all items
• Vote to approve purchase orders – encumbrance numbers xx through xx
• Vote to approve warrants numbered xx through xx
• Vote to approve building fund warrants numbers xx and xx
• Superintendent’s Report
• Vote on policies
• Assistant Superintendent’s Report
• Vote to approve action items such as fund raising, lease agreements, special travel, and state
required reports
• Vote to convene executive session, if appropriate and scheduled
• Vote to discuss agenda items as presented
• Vote to return to open session or vote to adjourn as appropriate and scheduled
Source: OSSBA Open Meeting Law Handbook
RECOMMENDATION
Update the Board meeting agenda format to incorporate a consent agenda.
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Using the consent agenda format outlined in the open meeting law handbook will make the
agenda more easily understood. It will consolidate routine matters and separate them from the
independent action items.
The superintendent should direct the board clerk to review the sample format outlined in the
open meeting law handbook, review board meeting agendas from other school districts, and
develop an agenda format more consistent with the example provided in Exhibit 1-13. The
superintendent should work with the Board of Education to obtain input and establish the new
agenda format.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
FINDING 1-7
Board meetings do not have set schedules where members receive information about curriculum
and instruction, programs in the district, or staff and/or student recognition. Occasionally, the
principal reports on programs or teachers present students who have excelled in competitions,
but those recognition and curriculum-related reports are not regularly scheduled. Minutes of
board meetings show that the superintendent and principal have scheduled reports, but no
attachments were included in the board packets that were examined.
Setting time aside for regular recognition of students, staff members, or community members for
their contributions or outstanding achievements would not take much time from the decision
making part of the meeting and could make a positive difference in board knowledge, staff and
student morale, and community awareness of good things taking place in the local schools.
RECOMMENDATION
Commit a portion of board meetings to reports on current educational programs and
achievements, and to the recognition of outstanding accomplishments and contributions.
Scheduling time for these purposes would have three positive results. It would: (1) allow the
board to learn about curriculum, instruction, and programs; (2) foster better board relations with
faculty, students and the public; and (3) inform the public about positive activities in the schools.
Adding quarterly recognition would highlight staff and student contributions and achievements.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
FINDING 1-8
Since arriving in EPS, the superintendent identified the age of board policies as an immediate
need to be addressed. One set of policies dated back to 1985 with the most recent group of
policies having been revised in 1997. Consequently, board policies have not been used as the
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basis for district decision making. All board members and the principal have copies of the policy
manual on a CD with the superintendent having the only hard copy in the district.
The superintendent took a very comprehensive approach to policy revision, working closely with
OSSBA and the Organization of Rural Oklahoma Schools (OROS) to identify essential policies.
He met with the legal staffs of both organizations to ensure that the policies he proposed to the
board met the legal standards and were actually essential to district operations.
COMMENDATION
The superintendent and board are commended for updating the district’s entire policy
book.
FINDING 1-9
Board members and the superintendent stated that the board had approved the new and/or revised
policies. The superintendent even provided the date of September 1, 2009. However, it is not
clear from the copies of policies that were provided to the consulting team that they were
actually board approved. Nor are policies available to students, staff, or the public on the district
website.
Many policies in each chapter provided reference to either Senate or House bills in particular
sessions or OSC, but very few state and adoption dates by the EPS School Board. In order for the
board, employees, or the public to know that the policies they are following are, in fact, EPS
board approved, the date of approval or revision must be clearly noted on the policy or
regulation. This also enables boards to have a clear understanding of a policy’s age and,
therefore, the need for review and/or revision. The superintendent stated that he did not feel the
need to subscribe to OSSBA policy services, as it is not a cost-effective expenditure for the
district. OROS sends the majority of changes to districts on a CD, which the superintendent then
uses as an addition to the policy handbook.
RECOMMENDATION
Ensure that all policies that are approved by the School Board clearly denote the date of
the board action and continue annual review of policies and procedures.
The superintendent and board should immediately implement this recommendation for
subsequent policy adoptions and revisions. In addition, the superintendent should direct his
secretary to correlate board minutes with the dates of the adoption of the recently revised policies
and procedures, and to add the date of approval to each. Policies should also be placed on the
district’s website for viewing by staff, students, and the public.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
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FINDING 1-10
The principal who is responsible for the education of all children in EPS from PreK through 12th
grade has only been an administrator for two years. This is the first position she has ever held as
a principal. She acknowledges that she has much to learn, but demonstrates a strong desire to
learn and grow as a school administrator. Her learning to date has been primarily through job-embedded
experience, as well as mentorship by Dr. Hayes.
The superintendent stated that he believed it was the responsibility of the principal to provide
instructional leadership in the district and that he gave her the autonomy to do so. While she
appreciates that trust, she has not yet been provided much opportunity for specific leadership
training, particularly in the area of budgeting. Helping her to understand the strong correlation
between district planning, budgeting, and student achievement is essential to her effective
leadership as a principal and member of the district leadership team.
Exhibit 1-14 shows that nearly 75 percent of the staff considers the principal an instructional
leader. Taking into account that this is her second year as principal, this reflects positively on
her. It also, however, shows a need for her to participate in additional professional growth
opportunities both in the district and outside it.
Exhibit 1-14
EPS Survey Results
Survey
Group Survey Statement Agree
No
Opinion Disagree
Staff The principal is an effective instructional
leader. 71% 24% 6%
Source: Prismatic Survey Results, September 2010
In such a small district, it is easy for there to be brief, informal conversations between the
superintendent and principal regarding instruction and leadership related issues. The consulting
team witnessed many such informal conversations. However, informal daily communications
cannot take the place of organized, regular meetings. The superintendent and principal should
schedule weekly time together to deeply discuss educational and management issues such as:
• curriculum and instruction;
• assessment;
• programs;
• student progress and needs;
• short and long-term educational planning;
• training needs; and
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• student discipline.
This will help mold the principal as a stronger instructional leader, capitalize on two minds
thinking instead of just one, and enable her to plan more effectively based upon student and
teacher learning needs.
RECOMMENDATION
Establish regular weekly meetings for the superintendent and principal to discuss key
educational topics, plan for the district and develop written policies and procedures for
each area of responsibility assigned.
The superintendent and principal must meet regularly and plan so that all staff works together on
goals to improve the district and student achievement. They should make a strong effort to
protect their time together during these meetings. As needed, they should include other staff so
that instruction, curricula, and support services for all students in the district are aligned. Each
should have the ability to contribute to the meeting agenda. Topics should include issues from
the above bulleted list, as well as identification of board presentations and other items of
immediate and long-range concern. They should also examine student data together as a regular
part of these meetings.
FISCAL IMPACT
This recommendation can be accomplished with existing resources.
B. PERSONNEL MANAGEMENT
Personnel costs typically represent the largest expense in school districts. As a result, efficient
and effective management of human resource functions is critical to the overall effectiveness of a
district. Typical tasks performed by the human resources function of a school district include:
• recruiting employees;
• overseeing the interviewing, selection, and processing of new employees;
• retaining employees;
• processing promotions, transfers, and resignations;
• determining and maintaining compensation schedules;
• planning and forecasting personnel needs;
• maintaining complete employee records;
• developing and maintaining job descriptions;
• managing the employee evaluation process;
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• handling employee complaints and grievances;
• developing personnel policies; and
• ensuring that the employer follows all laws and regulations.
Personnel Records
By designating a secure area and assigning individuals to maintain records, a district reduces its
risk of releasing confidential information. Storing confidential records in locked files or secure
storage closets, keeping the records locked up unless accessing the files for a business reason,
and ensuring that the files remain in their designated areas are just a few suggestions to make
sure that confidential records are safe and secure. The level of confidentiality determines the
degree of security required for storage. The following is a list of personnel records with the
highest level of confidentiality:
• medical information;
• alcohol and drug testing information;
• criminal history record information;
• teacher and administrator appraisal records;
• commissioned peace and security officer records; and
• social security numbers.
FINDING 1-11
The district does not have a formal process in place to orient, train, and otherwise support new
staff members. There does not appear to be a process that helps new employees understand their
roles, responsibilities, or district policies and procedures. One employee who has been in the
district for three years told the consulting team that the person who held her job previously had
worked with her for several months before she left the district. This appears to be the exception
rather than the rule in EPS.
Businesses with good retention of staff carry out practices that support new staff, thereby
improving the new employee’s potential to fit-in and experience job success. That, in turn,
reduces costs by lowering the frequency of staff turnover.
RECOMMENDATION
Create systematic processes that provide support and direction for all staff members.
Planned mentoring experiences for new staff members help them know and understand district
expectations, policies, and procedures. Coaching of existing staff placed into new roles improves
their efficiency and effectiveness. Training and carefully planned learning experiences for new
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administrators are essential, assisting them in becoming the kind of instructional leaders who can
lead in today’s educational climate and inspire teachers to improve student achievement.
FISCAL IMPACT
This recommendation can be accomplished with existing resources.
FINDING 1-12
The EPS personnel records housed in the superintendent’s office are secured in fireproof
cabinets and locked at all times. When the consulting team requested to see files in the central
office, the person complying with the request took keys from a location separate from the
cabinets and unlocked the file cabinet to provide access. Procedures are in place to secure the
office when the secretary is at lunch or out of the office for other reasons. Taking into account
the few staff members within the district, they are making every effort to provide security for
personnel records.
COMMENDATION
Eldorado Public Schools has uniform processes to maintain the security of personnel
records.
FINDING 1-13
Many people interviewed stated that the team that has been created within the past two years of
the superintendent, the principal, and the superintendent’s secretary is extremely effective and
beneficial to the district. The secretary is scheduled to go out on maternity leave soon.
Recognizing the key role that the secretary plays in keeping the district running smoothly,
district administration has made arrangements to have her office temporarily moved to her house
so that she is able to continue working while on leave after the baby is born.
COMMENDATION
The superintendent and board have planned ahead to make accommodations to keep the
district running smoothly during the secretary’s maternity leave.
FINDING 1-14
Two secretaries in the central office shoulder all responsibilities for clerical support for district-wide
functions. Their duties are separate and no cross-training occurs. This gap in shared
knowledge of office operations is not efficient or effective. The district has the benefit of having
the people who held both positions still in town as possible substitutes in cases of long-term
absences. If they are not available, then district operations are likely to be temporarily delayed
when a secretary is absent. There is not yet a systematic plan for having all functions covered in
the case of an absence.
Staff interviewed noted a concern about having sufficient controls, which is always a challenge
in a district with so few staff. Few of the tasks that the two clerical staff conduct are
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complementary and therefore do not provide cross checks of the other’s work. A system that
helps each staff member know the processes others use would keep all district operations running
smoothly until an absent staff member returns. It appears that little communication about job
tasks exists among the central office staff.
RECOMMENDATION
Address the need for cross-training and develop controls for central support staff
responsibilities.
The district should create a system for job shadowing of central office support staff and set aside
time for cross-training. With only two staff members supporting key district operations, it is
essential that both of them know how to perform the responsibilities of the other. That way,
when one is absent, especially for an extended period of time, district business can continue
without interruption. The superintendent should direct both central office staff to develop and
implement cross-training and identify with him areas where controls are essential.
The superintendent should also develop methods for controls, as much is possible in a small
district. Each office staff member should identify key functions and a weekly, monthly, and
annual calendar for each. They should become familiar with each other’s’ important documents
and forms as well as regulations regarding their job functions. If available, they should also each
have an updated copy of both job descriptions. Cross-training sessions could be held during the
slower summer months.
FISCAL IMPACT
This recommendation can be accomplished with existing resources.
Compensation
School districts employ two types of full-time employees, described as exempt employees and
non-exempt employees. Exempt employees include administrators and professional staff
members such as counselors and teachers. Exempt employees are paid a salary and do not have
to account for their time in detail.
Districts pay non-exempt employees on an hourly basis and must account in detail for their time.
Typically, non-exempt employees complete timesheets on a periodic basis or are required to use
a time clock. Non-exempt employees also have a maximum number of hours they may work at
their rate of pay. If the hours worked exceed this amount, the employee is entitled to overtime
pay, according to the Fair Labor Standards Act (FLSA). Non-exempt employees include teacher
assistants, custodians, child nutrition workers, and bus drivers.
FINDING 1-15
There are no schedules for determining the salaries of non-instructional staff that were hired
based upon their years of experience, their skills, and knowledge brought to their jobs. The
district employs a number of personnel at minimum wage, which is the law, but does not
encourage either a desire to become proficient or an attitude of commitment to the job. Interview
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participants stated that the superintendent determines a new employee’s salary, with at least
minimum wage as the base. The secretary also assists by gauging the experience a new employee
brings to the job. There are a few non-exempt staff members who earn above minimum salaries,
but many, regardless of length of service, only earn minimum wage.
For teachers, all districts in Oklahoma must use as a base, the state salary schedule. This
schedule defines teacher compensation based upon years of experience and educational
attainment. Using a similar clear cut scale for non-exempt employees would enable employee
groups to better understand the factors that affect their compensation, such as years of
experience, certificates for training received, or educational level. It assures them of equitable
treatment relative to their peers and can contribute to improved morale and heightened
productivity.
Without such a schedule, employees have no assurance that they are paid similar to other
individuals within the organization or in the same position. Not understanding the rationale for
the starting salary or raises can lead to lower employee morale and lower productivity. Many
school districts have non-exempt employee salary schedules that provide more equitable pay
within departments or throughout the district.
RECOMMENDATION
Develop a salary schedule for non-exempt employees and establish a clear cut procedure
for staff to earn raises.
The superintendent should work with the principal and secretary to create a salary schedule for
non-exempt employees. Factors could include years of experience, demonstrable skills, or
certificates for training received. It should be board approved, shared with district employees,
and updated periodically. Being the individual who is solely responsible for making decisions
about who receives raises places the superintendent in an awkward position. Developing policies
and procedures regarding salaries and raises will ensure staff of fairness of treatment and prevent
a superintendent from being perceived as acting preferentially.
For example, Wetumka Public Schools developed a salary schedule for non-exempt personnel.
The salary schedule consists of 20 steps and a set amount assigned to each step based upon job
title. This salary schedule also easily allows the district to compensate newly hired employees for
the skills, knowledge, and experience that they bring to their positions. When new non-exempt
personnel are hired, they can request higher placement on the salary schedule based upon
validation of their expertise and experience. These requests are approved by the School Board on
a case-by-case basis. This system provides clear, equitable compensation standards for all staff in
the district.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
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FINDING 1-16
There are few job descriptions for positions in EPS. The only job descriptions provided for the
consulting team were for a superintendent, principal, teacher, library media specialist, and
counselor. Even though a job description for teachers exists, one person stated that there was
none. The one that was provided the consulting team appears to have been revised at some point,
but does not reference either technology skills or making accommodations for students with
special needs. This is strong evidence of a need to update and raise awareness of job descriptions
in EPS.
Few people interviewed could produce a job description for their position. Others either stated
that they thought there was one in the EPS policy book or that they thought they had been given
one when they were employed. Since the maintenance director is a new position for the district, a
job description was developed for that position prior to hiring. Having clear job descriptions with
specific tasks and responsibilities helps the district by:
• reducing duplication of effort;
• improving staff morale because employees know what is expected of them;
• strengthening accountability for work production; and
• providing the district a means of tying annual evaluations to the duties outlined.
RECOMMENDATION
Develop job descriptions for each position, explain them to employees, and link them to
performance evaluations.
The superintendent should work with designated district staff to update the district’s job
descriptions. Job descriptions serve as an important management tool for setting forth minimum
qualifications, knowledge, and skill and ability requirements. A job description constructed to
today’s standards should include:
• description of general duties and responsibilities;
• description of specific duties and responsibilities;
• description of other duties and responsibilities;
• minimum credentials, training and/or experience;
• performance aptitudes;
• physical demands, work environment, and ADA compliance;
• title of evaluator and performance evaluation criteria;
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• title of supervisor and chain-of-command above and below the position;
• pay grade or salary line;
• overtime status, extra duty pay, etc.;
• terms of employment; and
• date the job description was developed or last revised.
The School Board should approve all job descriptions and administration should distribute them
to all EPS staff. District leaders should incorporate them into the staff evaluation process and
they should be reviewed for possible updates annually.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
Professional Development
Continuing professional development is vital for all employees. It helps ensure a knowledgeable,
well-trained and safe work force are employed in all areas. It reinforces employees’ sense of
value to the organization and helps prepare them for advancement.
John H. McConnell, in How to Identify Your Organization's Training Needs: a Practical Guide
to Needs Analysis, gives leaders guidance in determining “the training requirements of everyone
from newly hired, recently promoted, or just-transferred employees, to those who need training
as a result of changes in operations, technology, or systems in the company.”
FINDING 1-17
EPS does not have a sustained, high-quality professional development plan for any group of
employees. Teacher training appears to have been driven by topics offered through the Western
Tech Center in Altus, rather than analysis of data regarding student/teacher needs or a
needs assessment aligned with set district priorities. A K20 Center and a GEAR UP grant also
provide training opportunities for staff, but again, they are not related to specific district goals or
data analysis. No one interviewed provided any specific information about follow-up that is
occurring in classes to ensure that any training has become embedded in teacher practice. One
EPS staff member expressed a desire for a more planned, purposeful approach to professional
development.
Several interview participants commented that non-instructional staff regularly receives training
on topics such as bloodborne pathogens and CPR. The bus driver does receive training at the
Tech Center in Altus. Interview comments and a review of personnel records also showed ample
training for secretarial staff. However, the consulting team found little evidence of any other job-related
training for any other group of employees in the district. Specific examples the consulting
team found include:
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• no training provided to child nutrition workers. The manager/director said that she was aware
of state training opportunities, but that she had not been able to get away to attend them; and
• no training for the maintenance director, but he has only been employed for two months.
RECOMMENDATION
Expand the district’s approach to professional development to include regular training for
all staff based upon needs assessments related to job responsibilities and student
achievement.
Professional development is vital for all employees. It helps ensure a knowledgeable, well-trained,
and safe workforce in all areas of operation. It reinforces employees’ sense of value to
the organization and helps prepare them for advancement. The district should make personal and
professional growth of all employees one of its goals.
The superintendent and principal should upgrade the professional development plan for the
district. In doing so, they should review state statutes pertaining to required professional
development and also consider teacher evaluations, student test results, and overall district goals
as guides to future professional development offerings. State-mandated training such as “blood-borne
pathogens” should be offered online to better use staff time and free employees for more
job specific training. In addition, the district should plan to create a secure Intranet link to the
district website to add a professional development page to a password protected portion of the
website so district staff may access their professional development records.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
C. COMMUNICATIONS AND COMMUNITY INVOLVEMENT
School districts are a vital part of communities, often associated with a community’s identity,
sense of pride, and quality of life. This is especially true in smaller communities. In order to
strengthen this role, school districts should develop effective communications and community
involvement programs that lead to a more informed and engaged staff and community. Research
demonstrates that community outreach benefits both the community and the schools.
The primary role of communications in a school district is to convey a message and image
consistent with board policies that are implemented through procedures established by the
superintendent and district staff. Critical components of communications include strategies for
externally communicating with the community and internally communicating within the school
district.
Two-way communications are vital to the success of a district. Effective communications lead to
an informed staff and community, support for programs, and an atmosphere of openness. They
also contribute to effective leadership with the board and superintendent serving as a leadership
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team. Ineffective communications results in confusion, lack of support, conflicting messages and
decision making, and a sense of detachment within the district.
Effective community involvement programs should address the unique characteristics of the
school district and the community. These programs can significantly affect citizen perceptions of
the school system. Effective programs will rally public support and involvement. That will result
in parent and community volunteers, public participation in the decision making processes that
affect the schools (e.g. bond and board elections), and productive business and community
alliances.
FINDING 1-18
The district website is a universally reported weakness in the district’s communications
strategies. Reports reflected that prior to revision this year, the EPS website was not a positive
reflection on the district or community. It did not offer visitors meaningful information about the
district, essentially did not function, and, in one person’s words, was “horrid.” Many interview
participants, however, remarked that plans to improve the district website are underway. Two
teachers, who are sharing a stipend for extra duty in technology, have used new software to
revise and update the site, which has not yet been launched. Some plans mentioned for the future
include having a link for the Parent Teacher Student Organization (PTSO) that the public could
click on to learn of their activities and read updated bulletins.
Exhibit 1-15 shows responses from parents, staff, and students that reflect the need to improve
the district’s web site as a means of communicating with both the public and other school
stakeholders.
Exhibit 1-15
EPS Survey Results
Survey
Group Survey Statement Agree
No
Opinion Disagree
Parents The district website is a useful tool for me
and/or my child. 52% 35% 13%
Students The district website is a useful tool for me. 24% 41% 35%
Staff The district website is a useful tool for
staff, parents and students. 13% 19% 69%
Source: Prismatic Survey Results, September 2010
Participants interviewed stated that a concerted district communication approach had been a key
tool in passing the bond issue. However, they also identified barriers to improved parent
participation but no plans to address them. Decades of research demonstrate the impact that
active parents have on student achievement; thus, developing communications processes beyond
an improved website is essential for the district.
RECOMMENDATION
Improve the EPS website as a part of an overall public communications strategy.
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It would be beneficial for EPS to use an improved district website as an avenue to provide
important information to the students, parents, staff, and the public about the schools and their
activities and programs. An expanded website should include a school page, links to athletic
events and extra-curricular activities, and calendars and a web-based school newsletter.
Districts with effective websites include links to historical board minutes and agendas, board
policies, and handbooks, at a minimum. They also contain information about recent news,
curricula, and links to state standards. Others have interactive and password protected links to
evaluation forms and professional development records. Chapter 5 of this report includes some
criteria for an effective school district website, as developed by Oklahomans for Responsible
Government, which would be helpful in efforts to continue to develop the website.
The EPS website should only be one tool in the district’s overall public communications
strategy. The district should develop specific approaches to reach out to parents and the public
and involve them in the school district beyond the website. Continuing to add information and
school links could encourage communication by providing opportunities for parents and
businesses to become school volunteers or make donations of time, in-kind services, or funds to
the district. Other considerations for inclusion are: pictures and email addresses for the board
members, and information on the superintendent and the principal; notices of upcoming parent-teacher
conferences; lists of teachers and support staff, and email addresses for each; and
information regarding the existence, meeting times, dates, and activities of clubs and
organizations. An alumni link could also promote the achievements of EPS graduates, help them
stay in touch, and encourage them to support district needs.
A district developed Intranet for the EPS staff could be used to further facilitate internal
communications. The district’s policy manual and employee and student handbooks should be
available online for easy reference. District employee evaluation instruments could also become
available as password protected communications tools between administrators and their staff. As
the district expands its website to include additional features, it will become an invaluable
communication tool for students, staff, and the community, keeping them informed and
enhancing stakeholders’ involvement in the district.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
FINDING 1-19
Eldorado reports challenges in the area of parental engagement just as many other districts across
the country face. While few parents volunteer regularly in the school, there is a core of them who
will assist in a variety of capacities when asked. Several board members noted an active Parent
Teacher Student Organization (PTSO) that is well organized, advertises on the district billboard
located inside the school, and activates parents when called upon. Nonetheless, everyone
interviewed acknowledged that only a small percentage of parents were involved in the school.
The district has no formal process for parental engagement or soliciting, training, and using
volunteers in the schools and classrooms.
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Eldorado Public Schools Management, Personnel, and Communications
The percentage of EPS students (26%) who live in a single parent home or no parent situation is
higher than all but one of the peer districts. Another nine percent of EPS students are new each
year. These facts make parent involvement difficult but also make it critical for the district to
develop innovative ways to reach out to parents and involve them in their children’s education.
A volunteer movement to restart the high school baseball team is underway. This is a positive
development and the kind of activity that can build community and generate more interest in
helping with the school.
While Eldorado’s rate of parent-teacher conference attendance at 73.4 percent, according to the
Office of Accountability’s 2009 District Profile, is higher than the state average of 72.1 percent,
it is lower than three of its peers. Felt reported a 100 percent attendance rate last year. Exhibit 1-
16 shows a comparison of EPS and peer district attendance at parent-teacher conferences. EPS
has the second lowest attendance rate of all peers reporting.
Exhibit 1-16
Comparison of Eldorado and Peer District
Attendance at Parent-Teacher Conferences
District Percent of Parents Attending at Least
One Parent-Teacher Conference
Eldorado 73.4%
Blair 85.0%
Duke 88.1%
Felt 100.0%
Olustee 70.1%
Ryan FTR (Failed to Respond)
State 72.1%
Source: Office of Accountability, Profiles Database
Exhibit 1-17 shows that staff and parents alike do not have a strong feeling one way or another
about the extent to which parents are involved in district decision making.
Exhibit 1-17
EPS Survey Results
Survey
Group Survey Statement Agree
No
Opinion Disagree
Staff District stakeholders provide input into the
budgetary process. 41% 47% 12%
Parents Parents play an active role in decision making
in our schools. 58% 38% 4%
Source: Prismatic Survey Results, September 2010
Joyce Epstein at Johns Hopkins University and others have documented research showing the
positive effect that strong parental involvement has on schools and student achievement:
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• 50 to 85 percent of the variance in achievement scores, IQ, or verbal ability can be attributed
to parent, family, and home environment variables;
• parent education programs, especially those that train low income parents to work with their
children improve how well students use language skills, perform on tests, and behave in
school; and
• many studies have found that when parents become involved in school activities, not only do
their attitudes improve, but also those of their children. Student achievement rises as well.
RECOMMENDATION
Develop a coordinated volunteer program that promotes parent and community
involvement in the district’s schools.
EPS should develop a volunteer program that promotes parent and community involvement in
the district. The superintendent should form a committee that includes administrators, teachers,
parents, and community members to develop this program. The program should seek consistency
in policies and practices throughout the district and should also be formally approved by the
School Board. It should be flexible in thinking of opportunities for parents to be involved outside
the traditional concept of classroom volunteering.
The National Parent Teacher Association’s Seven Steps to a Successful Volunteer Program5
provides useful information for creating and maintaining an active school volunteer program.
EPS should use these seven steps as a guide in developing their own program:
• assessing the volunteer needs each school has;
• working with and training, principals, teachers, and school staff on effectively using and
supervising volunteers;
• setting goals and objectives for volunteer assignments;
• recruiting volunteers;
• training and orienting volunteers;
• training and recognizing volunteers, and
• evaluating volunteer performance and program success.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
5 http://www.pta.org/3549.htm
Chapter 2:
Instructional Delivery
Chapter 2
Instructional Delivery
This chapter examines the instructional delivery of Eldorado Public Schools (EPS) in the
following sections:
A. Instructional Delivery and Student Performance
B. Professional Development
C. Gifted and Talented Education
D. Special Education
E. Career and Technology Education
F. Guidance and Counseling
The primary purpose of any school system is educating children. Effective instructional delivery
is based upon the district’s mission to educate students and require policies and procedures to
direct the instructional process, provide well designed programs to meet the needs of all students,
and provide resources to support program implementation. The monitoring and evaluation of
program effectiveness based upon student performance data is also essential.
School districts offer educational services to students through a variety of programs including
regular education programs and special programs. Special programs are designed to provide
quality services for certain student populations, such as those in Gifted and Talented Education,
Special Education, and Career and Technology Education.
A. INSTRUCTIONAL DELIVERY AND STUDENT PERFORMANCE
Managing the instructional process to ensure academic success for all students is the
responsibility of the school district. A district’s instructional program along with its allocation of
resources, are the means by which a district attempts to meet the educational needs of all
students. A well designed and managed process for developing curriculum and directing
instruction, collecting assessment data to evaluate and monitor programs, and providing the
resources needed to support educational efforts is essential if a district is to meet the needs of its
students.
Curriculum development and instructional delivery are critical components of student learning.
The presentation of materials, concepts, skills, and new ideas greatly affect acquisition of
knowledge. Curriculum content and instructional strategies should be properly aligned and
regularly evaluated in order to promote improvement of student performance.
Oklahoma School Boards and superintendents should provide principals and teachers with the
tools necessary to consistently deliver the state adopted curriculum, Priority Academic Student
Skills (PASS), and to prepare students to be successful on state mandated assessments. Districts
should provide curriculum maps that clearly define standards and learning objectives for each
subject and grade level so that teachers know the content expectations and instructional timelines
for student mastery of objectives. Now that the new mission for the nation is “learning for all,”
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the principal and teachers, working collaboratively, are responsible for the consistency of
curriculum implementation on the campus, the quality of the instruction in the classroom, and
student performance.
Starting in 1998, Tim Waters, Ed.D., Robert J. Marzano, Ph.D., and Brian McNulty, Ph.D., from
Mid-Continent Regional Educational Laboratory (McREL) began synthesizing the body of
research on the effects of leadership practices on student achievement. In Balanced Leadership:
What 30 years of research tells us about the effect of leadership on student achievement, McREL
identified 21 leadership responsibilities that are significantly associated with student
achievement. They have translated the results of this research into a balanced leadership
framework that describes the knowledge, skills, strategies, and tools leaders need to positively
impact student achievement. The framework moves beyond abstraction to concrete
responsibilities, practices, knowledge, strategies, tools, and resources that principals and others
need to be effective leaders.
McREL’s leadership framework is based upon the idea that effective leadership means more than
simply knowing what to do. Effective leadership means knowing how, when, and why to take
action. A combination of knowledge and skills is the essence of balanced leadership. McREL
leadership characteristics and behaviors include:
• Affirmation
• Change Agent
• Communication
• Contingent rewards
• Culture
• Curriculum, instruction, assessment
• Discipline
• Flexibility
• Focus
• Ideals and beliefs
• Input
• Intellectual stimulation
• Knowledge of curriculum, instruction,
assessment
• Monitors and evaluates
• Optimizer
• Order
• Outreach
• Relationship
• Resources
• Situational awareness
• Visibility
Principals form the core of educational leadership in school districts. Over the past two decades,
the role of the principal has changed from that of a building manager who makes sure that
schedules are met, the school is maintained, and that discipline is properly enforced, to an
education leader responsible for consistency of curriculum implementation on the campus, the
quality of the instruction in the classroom, and student performance.
Oklahoma School Testing Program
Student assessment is an integral part of measuring student performance. The Oklahoma School
Testing Program (OSTP) develops the various standards-based tests that students must take
during the school year. The Oklahoma Core Curriculum Tests (OCCT) consist of criterion
referenced tests (CRTs) designed to measure student attainment of skills established for core
classes. The OCCT helps monitor student and school performance relative to the state mandated
curriculum standards called PASS.
Eldorado Public Schools Instructional Delivery
The OSTP program used a phase-in process to increase tested grades and subjects. CRTs are
currently administered in grades three through high school in this manner:
• third grade: Reading and Mathematics;
• fourth grade: Reading and Mathematics;
• fifth grade: Reading, Mathematics, Science, US History, and Writing;
• sixth grade: Reading and Mathematics;
• seventh grade: Reading, Mathematics, and Geography;
• eighth grade: Reading, Mathematics, Science, US History/Constitution/Government, and
Writing; and
• high school: End-Of-Instruction (EOI) tests in English II, English III, Biology I, US History,
Algebra I, Algebra II, and Geometry.
All students in the tested grades and subjects must participate in the OSTP. The test results for
Regular Education students who have attended for the Full Academic Year (FAY) count towards
a school’s and district’s overall Academic Performance Index (API). A student is considered
FAY if he/she enrolled within ten days of the beginning of the academic course and did not have
an enrollment lapse of more than ten consecutive school days until the date of testing. Student
test scores fall into one of the following four categories which were amended during the 2009
Oklahoma Legislative Session:
• Advanced – student demonstrates superior performance on challenging subject matter;
• Proficient (called Satisfactory prior to 2009)– student demonstrates mastery of appropriate
grade level subject matter and is ready for the next grade, course, or level of education, as
applicable;
• Limited Knowledge – student demonstrates partial mastery of the essential knowledge and
skills appropriate to his/her grade level, course, or level of education, as applicable; and
• Unsatisfactory – student does not perform at least at the limited knowledge level.
In 2005, a state law entitled Achieving Classroom Excellence (ACE) began requiring students
entering the ninth grade in 2008-09 (the current junior class) to pass four of the seven EOI tests
and earn a minimum of 23 credits in order to graduate from high school in 2012. All students
must pass the Algebra I and English II tests. All students must then pass at least two additional
EOI assessments from the other five areas (Biology I, US History, Algebra II, Geometry, English
III). Passing is considered scoring at the Proficient or Advanced levels.
To assist teachers and districts in teaching PASS and preparing students for the OCCT, the
Oklahoma State Department of Education (SDE) provides a variety of resources on its website.
These resources include:
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• PASS by subject and grade level;
• test blueprints for each grade level and subject area test that show what percentage of the test
each skill will represent;
• test/item specifications that show the specific standards and objectives to be tested;
• released test questions;
• writing samples;
• a list of words, called the academic vocabulary, that are used on each test; and the
• Depth of Knowledge (DOK) levels and percentage weights for all OCCT test questions in
Test Specifications.
FINDING 2-1
EPS is providing additional time and learning opportunities for students by offering after school
tutoring. Keeping up with homework and completing makeup work due to absence, should have
positive impact on a student’s performance on the state’s tests.
COMMENDATION
EPS has implemented a mandatory after school tutoring program for students in grades
five through twelve.
Test Results for 2007-09
Due to federal privacy regulations, schools may not report aggregate scores if five or fewer
students are tested in any given subject area. In 2008-09, EPS had 18 tests for which the data
were protected by privacy laws. Since the peer districts face similar reporting problems, except
where otherwise noted, Exhibits 2-1 through Exhibit 2-7 display EPS and peer district scores
averaged over a three-year period. The peer district and state averages reported are also for the
2007-09 testing cycles.
In the three year average, EPS third grade students performed below the community group
average and state in reading and math. In both cases, EPS students also scored lower than any of
the peer districts (Exhibit 2-1).
Eldorado Public Schools Instructional Delivery
Exhibit 2-1
Percentage of EPS and Peer District Grade 3 Regular Education,
Non-High Mobility Students Scoring Satisfactory or Above
2007-09 (three year average)
Entity Reading Math
Eldorado 67% 67%
Blair 87% 90%
Duke 96% 88%
Felt 77% 77%
Olustee 78% 100%
Ryan 78% 81%
Community Group H2 80% 70%
State 84% 77%
Source: Office of Accountability, Profiles Database
Exhibit 2-2 shows 2007-09 test results of fourth grade students in EPS regular education. EPS
students performed above the community group in reading and math. In reading, EPS scored
above the state but below the community group. EPS scores in reading were tied with one other
district for highest among the peer districts. The math scores were third highest among the peer
districts scores.
Exhibit 2-2
Percentage of EPS and Peer District Grade 4 Regular Education,
Non-High Mobility Students Scoring Satisfactory or Above
2007-09 (three year average)
Entity Reading Math
Eldorado 92% 75%
Blair 85% 62%
Duke 88% 82%
Felt 77% 92%
Olustee 92% 92%
Ryan 81% 65%
Community Group H2 81% 74%
State 86% 81%
Source: Office of Accountability, Profiles Database
The 2007-09 OCCT grade five tests included five content areas: reading, math, social studies,
science, and writing. Exhibit 2-3 shows the results for grade five EPS students. Student
performance was above the community group in all subjects except for social studies and above
the state in reading.
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Exhibit 2-3
Percentage EPS and Peer District Grade 5 Regular Education,
Non-High Mobility (FAY) Students Scoring Satisfactory or Above
2007-09 (three year average)
Entity Reading Math
Social
Studies Science Writing
Eldorado 87% 80% 60% 87% 87%
Blair 70% 74% 67% 85% 95%
Duke 76% 84% 54% 86% 86%
Felt 83% 83% 67% 92% 79%
Olustee 75% 92% 75% 83% 62%
Ryan 84% 84% 79% 98% 100%
Community Group H2 74% 75% 65% 84% 81%
State 81% 82% 75% 87% 88%
Source: Office of Accountability, Profiles Database
Exhibit 2-4 shows 2007-09 test results for sixth grade students in EPS. Performance in reading
and math was above the community group and the state. Compared to peer districts, EPS
students were third lowest in reading and tied for second highest in math.
Exhibit 2-4
Percentage EPS and Peer District Grade 6 Regular Education,
Non-High Mobility (FAY) Students Scoring Satisfactory or Above
2007-09 (three year average)
Entity Reading Math
Eldorado 86% 95%
Blair 75% 76%
Duke 87% 83%
Felt 89% 78%
Olustee 83% 100%
Ryan 88% 95%
Community Group H2 76% 73%
State 80% 78%
Source: Office of Accountability, Profiles Database
Performance for students in grade seven is shown in Exhibit 2-5. The results show that EPS
students scored above the state and community group average in reading, math, and geography.
Comparison to individual peer data shows that EPS student performance in reading was the
second highest, performance in math was the highest, and performance in geography was the
third highest.
Eldorado Public Schools Instructional Delivery
Exhibit 2-5
Percentage EPS and Peer District Grade 7 Regular Education,
Non-High Mobility (FAY) Students Scoring Satisfactory or Above
2007-09 (three year average)
Entity Reading Math Geography
Eldorado 88% 100% 94%
Blair 83% 77% 96%
Duke 88% 72% 81%
Felt 100% 67% 100%
Olustee 69% 72% 81%
Ryan 61% 77% 81%
Community Group H2 76% 70% 84%
State 80% 76% 87%
Source: Office of Accountability, Profiles Database
Exhibit 2-6 shows the 2007-09 results for grade eight students in EPS. In reading and science,
EPS students were above all peer districts, the community group average, and the state. In math,
EPS was above the community group average, the state, and all but one of the peer districts.
Scores for writing were below the community group, the state, and all peer districts. In social
studies, EPS was third lowest among peers, falling below the state average as well.
Exhibit 2-6
Percentage EPS and Peer District Grade 8 Regular Education,
Non-High Mobility (FAY) Students Scoring Satisfactory or Above
2007-09 (three year average)
Entity Reading Math
History/
Constitution/
Government Science Writing
Eldorado 100% 92% 69% 100% 75%
Blair 74% 90% 79% 95% 98%
Duke 87% 71% 58% 97% 94%
Felt 88% 100% 88% 100% 100%
Olustee 68% 82% 36% 86% 88%
Ryan 79% 78% 76% 96% 88%
Community Group H2 76% 71% 63% 87% 93%
State 81% 78% 75% 90% 94%
Source: Office of Accountability, Profiles Database
The EOI tests are administered to students taking the related high school level coursework. Only
two years of data are available for Algebra II, Geometry, and English III. Eighth grade students
taking the related coursework are also included in the results for the district. EPS students were
above the community group and state averages in Algebra I, English II, US History, and Biology
I. They were also above the community group – but below the state – in Algebra II and
Geometry. English III scores were not available, due to privacy laws, even using the two-year
average (Exhibit 2-7). Compared with peer districts, EPS students were highest among districts
with data in Algebra I, English II, US History, Biology I, and Algebra II. EPS students were
second highest in Geometry.
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Exhibit 2-7
Percentage of EPS and Peer District Regular Education,
Non-High Mobility (FAY) Students Scoring Satisfactory or Above on EOI Tests
2007-09
Entity Algebra I Eng II US Hist Bio I Algebra II* Geometry* Eng III*
Eldorado 100% 92% 92% 79% 63% 75% **
Blair 88% 74% 72% 65% 47% 65% 88%
Duke 68% 71% 56% 61% 50% 76% 85%
Felt 100% ** 89% 75% ** ** **
Olustee 74% 79% 52% 72% 50% 71% 89%
Ryan 61% 63% 61% 42% 3% 54% 74%
Community Group H2 69% 71% 58% 52% 36% 63% 73%
State 80% 79% 72% 63% 61% 73% 83%
Source: Office of Accountability, Profiles Database
*Two year averages used as these tests were not in place prior to 2008
**Data Protected by Privacy Laws
Academic Performance Index
The Academic Performance Index (API) is a numeric score that measures district performance
based upon a variety of educational indicators, though a great deal of emphasis is still placed
upon test results. The possible scores range from zero to 1500. The factors used in the calculation
of API scores include:
• The OSTP - as measured by student success on state achievement tests;
• School Completion - including attendance, dropout, and graduation rates; and
• Academic Excellence - including ACT scores and participation, Advanced Placement (AP)
credit, and college remediation rates in reading and mathematics.
As shown in Exhibit 2-8, EPS’s API was above the state average in 2006-07 and 2007-08 and
below the state average the remaining years. Compared to the peer districts, EPS had the lowest
score in 2005-06 but finished second in 2006-07.
Exhibit 2-8
District API Scores
Entity 2004-05 2005-06 2006-07 2007-08 2008-09
Eldorado 1096 1118 1300 1282 1277
Blair 1128 1219 1238 1247 1289
Duke 1264 1206 1263 1244 1393
Felt 936 1187 1202 1371 1432
Olustee 1309 1206 1211 1290 1242
Ryan 1131 1176 1308 1192 1217
State 1159 1180 1252 1279 1289
Source: Oklahoma State Department of Education
Eldorado Public Schools Instructional Delivery
Under the accountability provisions in the No Child Left Behind (NCLB) Act, the federal
government evaluates all public schools sites, school districts, and states for Adequate Yearly
Progress (AYP). The NCLB annual report card for EPS in 2008-09 shows that the district has
met the AYP standard.
The SDE provides a worksheet for calculating API scores. It can be found at the following
website: http://www.sde.state.ok.us/AcctAssess/pdf/API/CalculatingAPI.pdf. If the district has
tests or subgroups for which data are not reported because of privacy laws, this worksheet can be
used by plugging in raw scores with numbers of students scoring at different levels to generate
API scores in those categories. Additionally, the district can calculate the percentages of students
passing each test by using the score reports it receives on each student.
Exhibit 2-9 shows the percentage of graduates completing college bound curriculum. EPS is
above the state average in 2004-05 and 2008-08 and below in the remaining three years. There
was a sharp decline in 2005-06. EPS is also below the community group in three out of the five
years.
Exhibit 2-9
Percentage of EPS and Peer District Graduates
Completing Regents’ College-Bound Curriculum
Entity 2004-05 2005-06 2006-07 2007-08 2008-09
Eldorado 87.5% 7.1% 51.7% 50.0% 100.0%
Blair 91.5% 100.0% 100.0% 100.0% 100.0%
Duke 52.9% FTR 100.0% 71.4% 100.0%
Felt 100.0% 100.0% FTR 120.0% 33.3%
Olustee 100.0% 31.7% 85.7% 42.9% 83.3%
Ryan FTR FTR 77.8% 72.7% FTR
Community Group H2 74.6% 78.3% 85.1% 88.9% 79.6%
State 77.9% 79.1% 78.0% 81.8% 81.9%
Source: Office of Accountability, Profiles Database
FTR – Failed to Respond
Educational Planning and Assessment System
The Educational and Planning Assessment System (EPAS) was created by ACT, Inc. and
provides an integrated series of assessments and reporting services to support educators as they
help students set and reach goals for life after high school. The components of EPAS are the
EXPLORE, PLAN, and ACT assessments. EPAS assessments provide information about
progress at crucial points in a student’s educational career. Each test reports scores for four
sections - English, math, reading, science – and a composite score, which is an average of the
four subjects.
Information provided by EPAS assessments is linked longitudinally to provide an academic
information management system. These linked reports can be used to monitor student progress
over time, detect trends, and evaluate instructional outcomes in support of school improvement
efforts. The program is funded by the Oklahoma State Regents for Higher Education (OSRHE)
and content guides are available online to assist districts in curriculum alignment and
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improvement efforts at: http://okhighered.org/epas/.
EXPLORE, the eighth grade assessment, is the entry point to EPAS. The EXPLORE test
includes objective assessments in English, math, reading, and science reasoning. It also includes
activities that help young students begin the process of career and educational exploration.
EXPLORE provides baseline data for monitoring student progress through the high school years
in preparation for the ACT.
Exhibit 2-10 shows how EPS students performed on the EXPLORE test as compared to their
peers nationally. EPS scores were higher than the national average in math. Their English,
reading, science, and composite scores were lower than the national average.
Exhibit 2-10
EPS 8th Grade EXPLORE Scores
Compared to the National Average
2009-10
Subject EPS Score National Average
English 12.4 14.2
Math 16.4 15.1
Reading 13.6 13.8
Science 15.8 15.9
Composite 14.8 14.9
Source: EXPLORE, Profile Summary Report
PLAN, the 10th grade assessment, also includes objective assessments in English, math, reading,
and science reasoning. The educational and career planning activities are tailored to the needs of
students who are preparing to make decisions about life after high school. PLAN provides a
midpoint review of a 10th grade students’ progress toward their educational and career goals.
Exhibit 2-11 shows how EPS students performed on the PLAN test as compared to their peers
nationally. EPS scores were the same as the national average in math and lower than the national
average in all other areas. The composite score was also below the national average.
Exhibit 2-11
EPS 10th Grade PLAN Scores
Compared to the National Average
2009-10
Subject
EPS
Score National Averag

Oklahoma
School Performance Review
Office of Accountability
April 2011
Education Oversight Board / Office of Accountability
Susan Field, Chairman • Robert Buswell, Executive Director
655 Research Parkway, Suite 301 Oklahoma City, OK 73104 (405) 225-9470 Fax (405) 225-9474 www.SchoolReportCard.org
April 2011
Fellow Oklahomans:
The Education Oversight Board and the Office of Accountability are pleased to present this
school performance review for Eldorado Public Schools (EPS).
This review is intended to help EPS contain costs, improve management strategies and
operations, and increase student performance. To conduct this review the office contracted with
Prismatic Services, Inc.
Eldorado Public Schools has a number of commendable programs and enjoys support from
district residents; however, it is faced with several challenges. The review contains
recommendations to help EPS meet those challenges and improve the efficiency of their
operations. The review also highlights a number of “Commendable Practices” in programs,
operations, and services provided by the administration, teachers, and staff.
We are grateful for the cooperation of EPS Board of Education, administration, staff, parents,
and community members. They are to be commended for their dedication toward improving
educational opportunities for their community.
We are pleased to announce that this review is available in hardcopy through the Office of
Accountability and on the office’s web site at www.SchoolReportCard.org.
For the Education Oversight Board, For the Office of Accountability,
Susan Field Robert Buswell
Oklahoma School Performance Review
Eldorado Public Schools
April 2011
Education Oversight Board Office of Accountability
Susan Field, Chairman Robert Buswell, Executive Director
Patrick Gilmore, Vice-Chair Jeff Wallace, Assistant Director
Dr. Sherry Labyer Jerry (Yu-Chao) Hsieh, Database Design Analyst
Ami Shaffer Dr. Lonnie Melvin, School Improvement Coordinator
Edward A. Petersen
Reed Downey
Millard House II
Senator John Ford
Representative Ann Coody
Prismatic Services, Inc.
Tatia Prieto, President, Asst Project Manager
Rick Cobb, Project Manager
Dianne Lane – Chapter 1, Management, Personnel, & Communications
Loretta Schmidt – Chapter 2, Instructional Delivery
Jerry Williams – Chapter 3, Business Operations
Bob Holdredge – Chapter 4, Facility Use/Management; Safety/Security
Tatia Prieto – Chapter 5, Child Nutrition
Courtney Lockridge – Chapter 5, Technology
Scott Allen – Chapter 5, Transportation
This publication was prepared by the Office of Accountability as authorized by Title 70 of the Oklahoma Statutes, Section 3-118 and 1210.5331.
It was printed by the Oklahoma State Regents for Higher Education Central Services Department, as authorized by the Education Oversight
Board. Forty copies have been prepared at a cost of $1,518.00. Copies have been deposited with the Publications Clearinghouse of the Oklahoma
Department of Libraries, April 2011.
Eldorado Public Schools Table of Contents
i
Page
Executive Summary 1
Acknowledgements 1
Eldorado Public Schools 2
Commendations 4
Recommendations and Projected Costs and Savings 6
Chapter 1:
Management, Personnel, and Communications 1-1
A. Management and Organization 1-9
B. Personnel Management 1-21
C. Communications and Community Involvement 1-28
Chapter 2:
Instructional Delivery 2-1
A. Instructional Delivery and Student Performance 2-1
B. Professional Development 2-19
C. Gifted and Talented Education 2-26
D. Special Education 2-30
E. Career and Technology Education 2-34
F. Guidance and Counseling 2-36
G. Federal Programs 2-37
Chapter 3:
Business Operations 3-1
A. Financial Processes 3-8
B. Asset and Risk Management 3-20
C. Activity Funds 3-25
D. Auditing and Internal Controls 3-27
Chapter 4:
Facilities Use and Management 4-1
A. Facilities Planning and Construction 4-4
B. Maintenance and Custodial Operations 4-13
C. Energy Management 4-25
D. Safety and Security 4-35
Chapter 5:
Support Services 5-1
A. Child Nutrition 5-1
B. Technology 5-23
C. Transportation 5-45
Table of Contents Eldorado Public Schools
ii
Appendices:
A. Staff Survey Results A-1
B. Parent Survey Results B-1
C. Student Survey Results C-1
D. Community Input Focus Group Comments D-1
E. Enrollment Projections E-1
F. Thermal Images of Facilities F-1
Executive Summary
The Oklahoma School Performance Review (OSPR) Program was authorized by the Oklahoma
Legislature during the 2001 session and amended during the 2005 session. The responsibility to
conduct school performance reviews was assigned to the Office of Accountability, which is
under the direction of the Oklahoma Education Oversight Board. The purpose of a performance
review is to develop findings, commendations, and recommendations regarding (1) containing
costs; (2) improving management strategies; and (3) promoting better education for Oklahoma
children.
The Office of Accountability began the performance review of Eldorado Public Schools (EPS) in
August 2010. The Office of Accountability contracted with Prismatic to assist with the review.
The Prismatic consulting team conducted individual and small group interviews with district
personnel and board of education members. The team conducted a community focus group of
business and community leaders. The team also reviewed operations by touring facilities,
observing cafeteria operations, and riding school bus routes. Administrators, teachers, support
staff, parents, and students completed confidential surveys. The consulting team tabulated the
surveys and used the results in this review. Survey results are contained in Appendices A through
D.
Based on size, geography, and demographics, the Office of Accountability selected five
Oklahoma school districts as peer districts for comparison purposes. They are: Blair, Duke, Felt,
Olustee, and Ryan. These are called peer districts throughout this report.
For further comparison, a Community Group average is also used throughout the report. EPS
falls into community group H2, which includes districts with an ADM of fewer than 250
students. The “2” indicates that the percentage of EPS students eligible for free and reduced price
meals is above the state average.
During this review, Prismatic Services developed 73 recommendations designed to improve
operations and support increased academic performance. In some cases, these recommendations
should result in a net savings to the district, in some cases a net cost, and in some cases should
have no fiscal impact but should improve district effectiveness. A detailed list of costs and
savings by recommendation appears in Exhibit 4.
ACKNOWLEDGMENTS
The Office of Accountability and Prismatic wish to express their appreciation to the Board of
Education of Eldorado Public Schools, its Superintendent, Dr. Harold Hayes, and the many
district employees, students, parents, business leaders, and community residents who helped
during this review.
Prismatic Services, Inc. Page 1
Executive Summary Eldorado Public Schools
Page 2 Prismatic Services, Inc.
ELDORADO PUBLIC SCHOOLS
Eldorado Public Schools are located in Jackson County, Oklahoma, a county with a total land
area of 803 square miles. Jackson County is located in the southwestern corner of Oklahoma. Its
county seat, Altus, is home to Altus Air Force Base. In 2009, the city of Eldorado’s population
was estimated at 455 by the U.S. Census Bureau. The EPS student body is dispersed across a
total land area of 181 square miles within Jackson County, with 0.6 students per square mile.
Demographic data reflect the following information regarding Eldorado, compared to the
Oklahoma state average:
• a lower median household income;
• a significantly lower median house value;
• a higher percentage of residents with income below the poverty level; and
• a significantly lower percentage of residents with a bachelor's degree or higher.1
EPS has one campus, divided for accreditation purposes into an elementary school (EC-8), and a
high school (9-12). Exhibit 1 shows average daily membership (ADM), ethnicity, and eligibility
for free or reduced price meals for EPS and each of its schools for the 2008-09 school year.
Exhibit 1
EPS Student Enrollment and Socioeconomic Characteristics
2008-09
School
Grade
Span
Fall
Enrollment Caucasian Black Asian Hispanic
Native
American
Eligible
For
Free or
Reduced
Price
Meals
Elementary
School EC-8 93 71% 5% 0% 18% 5% 76.0%
High School 9-12 28 68% 0% 0% 29% 4% 86.0%
EPS Totals EC-12 121 70% 4% 0% 21% 5% 79.0%
Source: Office of Accountability, Profiles Database
Exhibit 2 shows demographic information for EPS, peer districts, and the state for 2008-09.
EPS’s average property valuation per student of $40,618 is third highest among its peer districts.
It is $1,743 higher than the state average of $38,875. EPS has a higher percentage of Hispanic
students than any other ethnic minority; at 21 percent, this is tied for second lowest among its
peer districts. Eldorado’s percent of students eligible for free or reduced price meals is higher
than the state and all of its peers.
1 Data from http://www.city-data.com/city/Eldorado-Oklahoma.html.
Eldorado Public Schools Executive Summary
Prismatic Services, Inc. Page 3
Exhibit 2
Demographics of EPS, Peer Districts, and State
2008-09
Ethnic Group
Entity
ADM
Caucasian
Black
Asian
Hispanic
Native
American
Average
Assessed
Property
Valuation Per
Student
Eligible
for
Free or
Reduced
Price
Meals
Eldorado 115.7 70% 4% 0% 21% 5% $40,618 78.5%
Blair 271.6 73% 3% 1% 17% 6% $83,925 55.0%
Duke 180.5 68% 1% 0% 27% 4% $55,193 59.2%
Felt 60.8 59% 0% 2% 39% 0% $21,196 72.9%
Olustee 173.4 56% 3% 1% 40% 1% $22,350 72.9%
Ryan 232.6 74% 3% 1% 21% 1% $24,161 71.4%
State 1,194.3 57% 11% 2% 11% 19% $38,875 56.3%
Source: Office of Accountability, Profiles Database
Exhibit 3 shows the ADM of EPS and its peer districts over the five year period between 2004-
05 and 2008-09. EPS’s ADM has decreased by 5.2 percent during this period. That represents the
second-lowest rate of decline among the peer districts.
Exhibit 3
EPS, Peer Districts, and State Student ADM Trends
ADM
Entity
2004-05
2005-06
2006-07 2007-08 2008-09
Percentage
Change
*Eldorado 122.0 123.1 117.2 109.2 115.7 (5.2%)
**Blair 303.2 307.1 282.3 266.6 271.6 (10.4%)
*Duke 187.0 206.0 201.9 190.3 180.5 (3.5%)
*Felt 88.4 81.9 82.6 74.2 60.8 (31.2%)
*Olustee 192.7 184.9 177.9 163.0 173.4 (10.0%)
*Ryan 268.0 266.9 250.9 243.1 232.6 (13.2%)
*Community Group H2 151.3 148.7 146.3 144.8 148.5 (1.9%)
**Community Group G1 303.2 352.6 346.0 348.0 339.6 12.0%
Source: Office of Accountability, Profiles Database
COMMENDATIONS
The Office of Accountability identified “exemplary” or “best practices” in Eldorado Public
Schools that led to 24 separate commendations. The Office of Accountability recommends that
other school districts throughout Oklahoma examine these exemplary programs and services to
see if they could be adapted to meet their local needs. The commendations are listed below and
explained in detail in each chapter.
Executive Summary Eldorado Public Schools
Page 4 Prismatic Services, Inc.
Chapter 1: MANAGEMENT, PERSONNEL, AND COMMUNICATIONS
The superintendent and board exemplify team collaboration in leading district improvements.
The Eldorado School Board and superintendent have a strong commitment to training, making
them well-prepared to lead the district.
The superintendent and board are commended for updating the district’s entire policy book.
Eldorado Public Schools has uniform processes to maintain the security of personnel records.
The superintendent and board have planned ahead to make accommodations to keep the district
running smoothly during the secretary’s maternity leave.
Chapter 2: INSTRUCTIONAL DELIVERY
EPS has implemented a mandatory after school tutoring program for students in grades five
through twelve.
EPS uses EPAS EXPLORE and PLAN data to support student career planning and to increase
student achievement.
Chapter 3: BUSINESS OPERATIONS
Eldorado Public Schools is commended on timely reports prepared by the superintendent that
keep board members and staff informed of anticipated state aid funding and the impact it will
have on operations.
EPS provides a secure location for district warrants waiting to be distributed, monies waiting to
be deposited, and for other valuables.
Eldorado Pubic Schools is commended for establishing policy for student activity funds and
communicating guidelines to staff.
Receiving substantially clean audit reports helps maintain EPS credibility among staff and the
community.
Chapter 4: FACILITIES USE AND MANAGEMENT
The superintendent and School Board successfully worked with the parents and other
constituents within the school district to forge a coalition which resulted in passing a much
needed bond initiative.
Eldorado Public Schools Executive Summary
Prismatic Services, Inc. Page 5
The elementary and junior/senior high school building has been updated with new air
conditioning systems within the past five years.
The maintenance on the roofing systems for the elementary and junior/senior high school
building and the vocational-agriculture building have been effective toward keeping those
systems watertight.
EPS employs sufficient custodial personnel to properly clean the district facilities.
EPS installed a new 18 camera high security monitoring system with digital data recording
capability on all cameras. This addition significantly improves the security posture of the school.
Chapter 5: SUPPORT SERVICES
The district is commended for implementing technology in its cafeteria operations.
EPS meal participation is commendable.
EPS successfully gained outside grant funding to target technology needs.
EPS is commended for acquiring SmartBoards for classroom use and for providing initial
professional development for the teachers who will be using them.
The district has used the resources of the Southwest Technology Center to keep its drivers
licensed and trained.
The Eldorado drivers exhibit concern and caring for all students in their charge and provide on-time
transportation services.
EPS is appropriately providing transportation to selected students who live within 1.5 miles of
school.
The district does a thorough job of controlling fuel cost.
RECOMMENDATIONS AND PROJECTED COSTS AND SAVINGS
A list of recommendations with their associated costs is provided in Exhibit 4. In each chapter,
implementation strategies and the estimates of fiscal impact follow each recommendation in this
report. The implementation section associated with each recommendation highlights the actions
necessary to achieve the proposed results. Many of the recommendations have no costs or
savings attached, but are designed to formalize, improve, and streamline operations. In some
cases, the consulting team has made recommendations that will likely generate savings for the
district, but in an effort to be conservative, no specific savings were estimated.
It must be understood that not all of the recommendations can be started at one time. The
consulting team did not want to place priorities by indicating which should be implemented
Executive Summary Eldorado Public Schools
Page 6 Prismatic Services, Inc.
immediately and which ones implemented later. It will be up to the district to decide which ones
to implement and the timelines for beginning implementation.
The Office of Accountability recommends that the EPS Board of Education ask district
administrators to review the recommendations, develop an implementation plan, and monitor its
progress. Office of Accountability staff is available to help implement the recommendations.
Exhibit 4
Summary of Costs and Savings by Recommendations
Estimated (Costs) or Savings
Recommendation 2011-12 2012-13 2013-14 2014-15 2015-16
Total Five-
Year
(Costs) or
Savings
Chapter 1 Management, Personnel, and
Communications
1 Develop a comprehensive
strategic plan for the district
and ensure that all parts of the
CLEP are included in the plan.
($1,500) $0 $0 $0 $0 ($1,500)
2 Embed accountability into
district operations so that all
district activities are aligned
with established district goals.
$0 $0 $0 $0 $0 $0
3 Revise time spent on
discussion during board
meetings to focus it on
decision making and answers
to board member questions,
instead of reiteration of
previously available
information.
$0 $0 $0 $0 $0 $0
4 Update the Board meeting
agenda format to incorporate a
consent agenda.
$0 $0 $0 $0 $0 $0
5 Commit a portion of board
meetings to reports on current
educational programs and
achievements, and to the
recognition of outstanding
accomplishments and
contributions.
$0 $0 $0 $0 $0 $0
6 Ensure that all policies that are
approved by the school board
clearly denote the date of the
board action and continue
annual review of policies and
procedures.
$0 $0 $0 $0 $0 $0
Eldorado Public Schools Executive Summary
Prismatic Services, Inc. Page 7
Estimated (Costs) or Savings
Recommendation 2010-11 2011-12 2012-13 2013-14 2014-15
Total Five-
Year
(Costs) or
Savings
7
Establish regular weekly
meetings for the
superintendent and principal to
discuss key educational topics,
plan for the district and
develop written policies and
procedures for each area of
responsibility assigned.
$0 $0 $0 $0 $0 $0
8
Create systematic processes
that provide support and
direction for all staff members.
$0 $0 $0 $0 $0 $0
9
Address the need for cross-training
and develop controls
for central support staff
responsibilities.
$0 $0 $0 $0 $0 $0
10
Develop a salary schedule for
non exempt employees and
establish a clear cut procedure
for staff to earn raises.
$0 $0 $0 $0 $0 $0
11
Develop job descriptions for
each position, explain them to
employees, and link them to
performance evaluations.
$0 $0 $0 $0 $0 $0
12
Expand the district’s approach
to professional development to
include regular training for all
staff based upon needs
assessments related to job
responsibilities and student
achievement.
$0 $0 $0 $0 $0 $0
13
Improve the EPS website as a
part of an overall public
communications strategy.
$0 $0 $0 $0 $0 $0
14
Develop a coordinated
volunteer program that
promotes parent and
community involvement in the
district’s schools.
$0 $0 $0 $0 $0 $0
Subtotal ($1,500) $0 $0 $0 $0 ($1,500)
Chapter 2 Instructional Delivery
1 Develop and implement grade
level curriculum pacing maps
in the core content areas based
upon Oklahoma PASS, testing
blueprints, and student data.
$0 $0 $0 $0 $0 $0
Executive Summary Eldorado Public Schools
Page 8 Prismatic Services, Inc.
Estimated (Costs) or Savings
Recommendation 2010-11 2011-12 2012-13 2013-14 2014-15
Total Five-
Year
(Costs) or
Savings
2 Implement an ongoing,
systematic process to
establish, monitor, and adjust
vertical alignment of
curriculum in core content
areas.
$0 $0 $0 $0 $0 $0
3 Provide training for all EPS
administrators and teachers on
disaggregating test data,
analyzing and interpreting test
data, integrating results-based
solutions into daily instruction,
remediation and intervention,
and creating and updating
curriculum and vertical
alignment maps.
$0 $0 $0 $0 $0 $0
4 Develop a long-range plan to
update and expand the
library/media center to better
serve the needs of the school
and community.
$0 $0 $0 $0 $0 $0
5 Develop a long-term
professional development plan
based upon the effective
schools research that drives
comprehensive school
improvement.
$0 $0 $0 $0 $0 $0
6 Provide training in school
improvement models that
increase the professional
expertise of administration and
teachers.
$0 $0 $0 $0 $0 $0
7 Create scheduled opportunities
for teachers to collaborate
regarding technology and soft-ware
use, the appropriate
applications for grade level
and content skills, and for
remediation and intervention.
$0 $0 $0 $0 $0 $0
8 Implement the district’s Gifted
and Talented program with
total compliance to the
adopted plan to ensure all
identified students are
appropriately tested and
served.
$0 $0 $0 $0 $0 $0
Eldorado Public Schools Executive Summary
Prismatic Services, Inc. Page 9
Estimated (Costs) or Savings
Recommendation 2010-11 2011-12 2012-13 2013-14 2014-15
Total Five-
Year
(Costs) or
Savings
9 Implement a consistent,
ongoing training program to
assist all teachers in designing
and delivering differentiated
instruction to mainstreamed
special education students.
$0 $0 $0 $0 $0 $0
10 Develop and implement a
counseling program for PreK
through 12th grade
incorporating state guidelines
and school counseling best
practices.
$0 $0 $0 $0 $0 $0
Subtotal $0 $0 $0 $0 $0 $0
Chapter 3 Business Operations
1 EPS should develop a payroll
reconciliation process to help
ensure that all changes needed
to employee payroll records
are made prior to running
payrolls.
$0 $0 $0 $0 $0 $0
2 Establish a budgetary process
that is timely, easily
understood, and
communicated throughout the
district.
$0 $0 $0 $0 $0 $0
3 Expand the current monthly
financial reports to include
types of revenues and
expenditures, a comparison
with the previous year’s
financial information, and a
more detailed treasurer’s
report.
$0 $0 $0 $0 $0 $0
4 Revise the district general
fund balance policy to
establish a minimum fund
balance, provide guidance on
to achieve the minimum
balance, and require fund
balance status reports to the
board.
$0 $0 $0 $0 $0 $0
5 Develop desk procedures for
the important duties performed
by the treasurer and
encumbrance clerk, and the
two should be cross-trained in
each other’s duties.
$0 $0 $0 $0 $0 $0
Executive Summary Eldorado Public Schools
Page 10 Prismatic Services, Inc.
Estimated (Costs) or Savings
Recommendation 2010-11 2011-12 2012-13 2013-14 2014-15
Total Five-
Year
(Costs) or
Savings
6 Revise the process for
deducting the cost of lunches
from employees’ pay warrants
so that monies deducted from
pay warrants of employees are
deposited directly into the
child nutrition account.
$0 $0 $0 $0 $0 $0
7
Establish selection criteria for
the local banking services
contract and solicit proposals.
$0 $0 $0 $0 $0 $0
8 Negotiate with the district’s
bank to provide a sweep of
idle cash balances into higher-yielding
investments on an
overnight basis and require a
sweep account in future bids
for banking services.
$0 $0 $0 $0 $0 $0
9 Develop and implement a
policy outlining the duties
surrounding textbook issuance
and maintenance.
$0 $0 $0 $0 $0 $0
10 Track fixed assets acquired
with district funds and develop
fixed asset policies.
$0 $0 $0 $0 $0 $0
11 Establish and implement a
policy on direct deposit for
pay warrants.
$0 $0 $0 $0 $0 $0
12 The EPS treasurer should
review the encumbrance
clerk’s bank reconciliations
and the encumbrance clerk
should review the treasure’s
bank reconciliations.
$0 $0 $0 $0 $0 $0
13 Develop a policy that requires
a signature on receipts for all
materials and services
rendered before payments are
made to vendors.
$0 $0 $0 $0 $0 $0
14 Develop a policy requiring
competitive proposals for
professional independent
auditing services at a
designated interval of at least
every five years.
$0 $0 $0 $0 $0 $0
Subtotal $0 $0 $0 $0 $0 $0
Eldorado Public Schools Executive Summary
Prismatic Services, Inc. Page 11
Estimated (Costs) or Savings
Recommendation 2010-11 2011-12 2012-13 2013-14 2014-15
Total Five-
Year
(Costs) or
Savings
Chapter 4 Facilities Use and
Management
1 Develop a long-range facilities
master plan and a capital
improvement program with
specific timelines to address
facility improvement needs.
$0 $0 $0 $0 $0 $0
2 Replace existing T-12 lights
with T-8 energy saving lights.
($5,729) ($5,729) ($5,729) ($5,729) ($5,729) ($28,645)
3 Implement a formalized
maintenance program that
includes a documented work
order management and
preventive maintenance.
$0 $0 $0 $0 $0 $0
4 Paint the cafeteria building. $0 $0 $0 $0 $0 $0
5 Improve electrical safety
throughout the district.
$0 $0 $0 $0 $0 $0
6 Implement an energy
management program (EMP)
to conserve energy.
$600 $600 $600 $600 $600 $3,000
7 Conduct a fire safety
inspection and correct
deficiencies found.
$0 $0 $0 $0 $0 $0
8 Conduct an electrical safety
inspection and correct
deficiencies found.
$0 $0 $0 $0 $0 $0
9 Develop a planned safety
program that includes training,
inspection, and certification of
life safety equipment as
required by applicable codes.
The district should also obtain
an AED and conduct training
to ensure all teachers, staff,
and high school
upperclassmen are competent
in the application and use of
the AED.
$0 $0 $0 $0 $0 $0
10 Create an up-to-date district-wide
crisis management plan.
$0 $0 $0 $0 $0 $0
11 Obtain access keys to the
storm shelter and place them
with both the superintendent
and the principal.
$0 $0 $0 $0 $0 $0
Subtotal ($5,129) ($5,129) ($5,129) ($5,129) ($5,129) ($25,645)
Executive Summary Eldorado Public Schools
Page 12 Prismatic Services, Inc.
Estimated (Costs) or Savings
Recommendation 2010-11 2011-12 2012-13 2013-14 2014-15
Total Five-
Year
(Costs) or
Savings
Chapter 5 Support Services
Child Nutrition
1 Sponsor a Summer Food
Service Program for children.
$250 $250 $250 $250 $250 $1,250
2 Improve the accuracy of the
meal count procedure.
$919 $919 $919 $919 $919 $4,595
3 Improve and enhance the
financial operations of the
child nutrition program.
$500 $3,750 $5,750 $7,750 $7,750 $25,500
4 Develop and implement a
staffing plan consistent with
state staffing guidelines.
$2,538 $2,538 $2,538 $2,538 $2,538 $12,690
5 Implement menu planning
software.
($1,500) ($1,500) ($1,500) ($1,500) ($1,500) ($7,500)
6 Allocate a percentage of the
annual child nutrition budget
for equipment replacement.
($529) ($529) ($529) ($529) ($529) ($2,645)
7 Schedule recess before lunch. $0 $0 $0 $0 $0 $0
8 Close the campus to all
students during the school day,
including the lunch period.
$1,397 $1,397 $1,397 $1,397 $1,397 $6,985
9 Include funds for constructing
or renovating the child
nutrition facilities in future
bond initiatives.
$0 $0 $0 $0 $0 $0
Technology
10 Improve the technology plan
with the recommended
suggestions.
$0 $0 $0 $0 $0 $0
11 The district should create a
part-time, non teaching
technology coordinator
position.
($10,000) ($10,000) ($10,000) ($10,000) ($10,000) ($50,000)
12 Develop and implement a
disaster recovery plan.
$0 $0 $0 $0 $0 $0
13 Develop a software needs
assessment and adoption
process.
$0 $0 $0 $0 $0 $0
14 Continue to update and expand
the district website.
$0 $0 $0 $0 $0 $0
15 Develop a curriculum for
technology that implements
Priority Academic Student
Skills (PASS) standards for
instructional technology.
$0 $0 $0 $0 $0 $0
Eldorado Public Schools Executive Summary
Prismatic Services, Inc. Page 13
Estimated (Costs) or Savings
Recommendation 2010-11 2011-12 2012-13 2013-14 2014-15
Total Five-
Year
(Costs) or
Savings
16 Develop procedures to assess
technology use and
satisfaction, with a goal of
high utilization.
$0 $0 $0 $0 $0 $0
17 Develop a disposal plan for
obsolete equipment.
$0 $0 $0 $0 $0 $0
18 Develop a training program
that focuses on increasing
basic technology skills and
integrating technology into the
instructional program.
$0 $0 $0 $0 $0 $0
Transportation
19 Review all turn-arounds on
private property.
$0 $0 $0 $0 $0 $0
20 Review compensation of
substitute drivers.
$0 $0 $0 $0 $0 $0
21 EPS should track their bus
maintenance.
$0 $0 $0 $0 $0 $0
22 Address bus safety problems
in a timely fashion.
($300) ($100) ($100) ($100) ($100) ($700)
23 Install sufficient lighting at the
bus barn to enable drivers to
carry-out a complete and
thorough Pre-Trip inspection.
($500) $0 $0 $0 $0 ($500)
24 Conduct a thorough cleaning
and safety review.
$0 $0 $0 $0 $0 $0
Subtotal ($7,225) ($3,275) ($1,275) $725 $725 ($10,325)
Total savings $6,204 $9,454 $11,454 $13,454 $13,454 $54,020
Total costs ($20,058) ($17,858) ($17,858) ($17,858) ($17,858) ($91,490)
Total net savings and costs ($13,854) ($8,404) ($6,404) ($4,404) ($4,404) ($37,470)
Chapter 1:
Management, Personnel, and
Communications
Chapter 1
Management, Personnel, and Communications
This chapter addresses the management, personnel, and communications of Eldorado Public
Schools (EPS) in the following sections:
A. Management and Organization
B. Personnel Management
C. Communications and Community Involvement
The organization and management of a school district involves cooperation between elected
members of the board of education and staff of the district. The board’s role is to set goals and
objectives for the district in both instructional and operational areas, determine the policies by
which the district will be governed, approve the plans to implement those policies, provide the
funding sources necessary to carry out the plans, and evaluate the results of the plans.
Once the goals and objectives of the district are adopted by the board, it is the responsibility of
the superintendent and staff to establish policies and procedures to achieve these end results.
This achievement involves the hiring and retention of employees as well as ongoing
communication with the community to ensure an understanding of those goals and the district’s
efforts to accomplish them.
Background
Eldorado Public Schools are located in Jackson County, Oklahoma, a county with a total land
area of 803 square miles. The district is located approximately 85 miles from Lawton in the
southwestern corner of Oklahoma. In July 2009, the city of Eldorado’s population was recorded
at 455, having decreased since 2000 by nearly ten percent. The EPS student body is dispersed
across a total land area of 181 square miles within Jackson County with .6 students per square
mile.
Demographic data reflect the following information regarding Eldorado compared to the
Oklahoma state average:
• a lower median household income;
• a significantly lower median house value;
• a lower median household income than the state average;
• a higher percentage of residents with income below the poverty level and with income below
50 percent of the poverty level; and
Prismatic Services, Inc. Page 1-1
Management, Personnel, and Communications Eldorado Public Schools
Page 1-2 Prismatic Services, Inc.
• a significantly lower percentage of residents with a bachelor's degree or higher.1
Demographics
EPS has one elementary school serving early childhood through eighth grade and one high
school serving grades 9 through 12. Exhibit 1-1 shows average daily membership (ADM),
ethnicity, and eligibility for free or reduced price meals for EPS and each of its schools for 2008-
2009.
Exhibit 1-1
EPS Student Enrollment and Socioeconomic Characteristics
2008-09
School
Grade
Span
Fall
Enrollment Caucasian Black Asian Hispanic
Native
American
Eligible
For
Free or
Reduced
Price
Meals
Elementary
School EC-8 93 71% 5% 0% 18% 5% 76.0%
High School 9-12 28 68% 0% 0% 29% 4% 86.0%
EPS Totals EC-12 121 70% 4% 0% 21% 5% 79.0%
Source: Office of Accountability, Profiles Database
Exhibit 1-2 shows demographic information for EPS, peer districts, and the state for 2008-09.
EPS’s average property valuation per student of $40,618 is higher than all but two of its peer
districts, its community group, and the state. It is a little under $2,000 more than the state
average of $38,875. EPS has the highest percentage of Native American students among its peers
with the exception of Blair. Eldorado’s percent of students eligible for free or reduced price
meals is higher than the state, the community group, and all of its peers.
1 Data from http://www.city-data.com/city/Eldorado-Oklahoma.html.
Eldorado Public Schools Management, Personnel, and Communications
Exhibit 1-2
Demographics of EPS, Peer Districts, and State
2008-09
Ethnic Group
Entity
ADM
Caucasian
Black
Asian
Hispanic
Native
American
Average
Assessed
Property
Valuation Per
Student
Eligible
for
Free or
Reduced
Price
Meals
Eldorado 115.7 70% 4% 0% 21% 5% $40,618 78.5%
Blair 271.6 73% 3% 1% 17% 6% $83,925 55.0%
Duke 180.5 68% 1% 0% 27% 4% $55,193 59.2%
Felt 60.8 59% 0% 2% 39% 0% $21,196 72.9%
Olustee 173.4 56% 3% 1% 40% 1% $22,350 72.9%
Ryan 232.6 74% 3% 1% 21% 1% $24,161 71.4%
Community
Group H2
148.5
51% 3% 0% 6% 39%
$39,900 76.1%
State 1,194.3 57% 11% 2% 11% 19% $38,875 56.3%
Source: Office of Accountability, Profiles Database
*Not Available
Exhibit 1-3 shows the ADM of EPS and its peer districts over the five year period between
2004-05 and 2008-09. EPS’s ADM has decreased by 5.2 percent during this period. That is more
than Community Group H2’s rate of decrease of 1.9 percent, but less than all but one of the peer
districts, Duke. Blair is the only district chosen as a peer that is in a different Community Group
G1. Whereas the ADM in Community Group H2 and all peer districts have decreased during
those five years, the ADM in Community Group G1 has risen.
Exhibit 1-3
EPS, Peer Districts, and State Student ADM Trends
ADM
Entity
2004-05
2005-06
2006-07 2007-08 2008-09
Percentage
Change
*Eldorado 122.0 123.1 117.2 109.2 115.7 (5.2%)
**Blair 303.2 307.1 282.3 266.6 271.6 (10.4%)
*Duke 187.0 206.0 201.9 190.3 180.5 (3.5%)
*Felt 88.4 81.9 82.6 74.2 60.8 (31.2%)
*Olustee 192.7 184.9 177.9 163.0 173.4 (10.0%)
*Ryan 268.0 266.9 250.9 243.1 232.6 (13.2%)
*Community Group H2 151.3 148.7 146.3 144.8 148.5 (1.9%)
**Community Group G1 303.2 352.6 346.0 348.0 339.6 12.0%
Source: Office of Accountability, Profiles Database
EPS has experienced a number of changes in enrollment among ethnic groups over the past five
years. Caucasian student enrollment has decreased by almost seven percent. Black enrollment
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Management, Personnel, and Communications Eldorado Public Schools
has decreased by 20 percent. Native American enrollment has decreased by 50 percent and Asian
enrollment has decreased from one percent to zero percent. During this same period, average
assessed property valuation per student increased by 9.5 percent. The percentage of students
eligible for free or reduced priced meals decreased less than one percentage point (Exhibit 1-4).
Exhibit 1-4
Change in Demographics of EPS
2005-09
Ethnic Group
School
Year
ADM
Caucasian
Black
Asian
Hispanic
Native
American
Average
Assessed
Property
Valuation
Per
Student
Eligible
for
Free or
Reduced
Price
Meals
2004-05 122.0 65% 5% 1% 19% 10% $37,106 78.7%
2005-06 123.1 67% 5% 2% 22% 4% $36,749 78.8%
2006-07 117.2 64% 6% 2% 26% 3% $38,657 73.4%
2007-08 109.2 64% 5% 2% 25% 5% $42,081 74.2%
2008-09 115.7 70% 4% 0% 21% 5% $40,618 78.5%
Change (5.2%) 7.7% (20%) (100%) 10.5% (50%) $3,512 or
9.5%
(0.2%)
Source: Office of Accountability, Profiles Database
School Board Governance
Oklahoma state education laws, as codified in the Oklahoma School Code (OSC) and district
policies, establish the powers and responsibilities of the district board of education and the
superintendent. OSC contains 12 chapters subdivided first by topic and then sections. Each
section provides legal guidance for school district governance and operations (Exhibit 1-5).
OSC Ch. 1, Art. V, Section 54 states, “Every school district shall be a body corporate and shall
possess the usual powers of a corporation.” OSC Ch. 1, Art. V, Section 55 states, “The governing
board of each school district in Oklahoma is hereby designated and shall hereafter be known as
the board of education of such district.”
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Exhibit 1-5
Oklahoma School Code Chapters, Articles, and Sections
Chapter No. – Title Articles Sections
1 - Oklahoma School Code I-XXIV 1-517
2 - Administration I-VII 518-521
3 - Bonds I-II 522-619
4 - Funds And Finance I-V 620-707
5 - Elections And Ethics I-II 708-727
6 - Personnel I-V 728-802
7 - Students I-III 803-841
8 - Instruction I-IX 842-919
9 - Facilities And Equipment I-VII 920-1005
10 - Career And Technology Education I 1006-1016
11 - Transportation I-III 1017-1027
12 - Safety And Security I-VII 1028-1062
Appendix A Appropriation Bills
Relating to Education
Appendix B Senate Bill No. 1114
Appendix C Amendments,
Repeals,
and New Sections
Appendix D Table of Statutes
Index
Source: Oklahoma School Law Book, 2009
OSC Ch. 1, Art. V, Section 68 describes the powers and duties of the board of education. It
covers all activities related to operating public school districts. Key powers and duties prescribed
in OSC include election of officers, establishing board policies, building and operating schools
and related facilities, and contracting for an annual audit of all district funds.
OSC Ch. 1, Art. V, Section 56 addresses the size and election of School Boards in Oklahoma,
and Section 77 provides a description of the required officers for School Boards. Adhering to
these sections, the EPS board consists of five elected members, all serving staggered five-year
terms (Exhibit 1-6).
After a recent controversial vote about annexation, three board members and the last
superintendent left. Consequently, the EPS board is comprised largely of new board members.
One, Tim Springs, however, has served on the board for 32 years, lending experience and
guidance to new board members.
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Exhibit 1-6
EPS Board Members
Board Member
Board Position
Year of
Election or
Appointment
Term
Expires
*Jackie Kenmore President 2010 2013
**Bryan Adams Vice-President 2009 2011
Tim Springs Clerk 2009 2014
*Kevin Hill Member 2010 2015
*Cory Robinson Member 2007 2012
Source: Office of the Superintendent, September 2010
*New
**Appointed
The state sets a date for board elections to be held each year in February. At the first regular,
special, or emergency meeting after the annual School Board election and certification of
election of new members, the EPS board organizes itself by electing officers. OSC Ch. 1, Art. V,
Sections 78, 79, and 80 list the duties of each officer of the board of education. The board must
also elect a clerk, who may or may not be a member of the board.
Board of Education Meetings
The board meets on the second Thursday of every month in the Eldorado Superintendent’s
Office. Times of meetings from November through April are at 7:00 p.m. During the months of
May and July through October, meetings are held at 8:00 p.m. In the month of June, the board
holds two meetings largely for budget purposes: one on the second Thursday of the month; and
one on the last Monday of the month. Both are scheduled at 8:00 a.m., although they have talked
about eliminating one of the June meetings. The meeting times vary to accommodate board
members who need to be in the fields during planting and harvesting.
The meeting place and time may be changed with the majority of the board agreeing. The board
holds special meetings as needed. Board members receive their agendas and supporting
information in advance of the meeting, usually between one and two days prior to the meeting.
Although all board members report that the accompanying packet of information is extensive,
they all stated that the time they had to review the materials was sufficient for them to be
prepared for the meeting.
Oklahoma statutes and EPS board policy require all board meetings to be held in accordance
with the Oklahoma Open Meeting Act (OOMA). Title 25 of Oklahoma Statutes Sections 301
through 314 contains the OOMA (Exhibit 1-7). According to section 302 of OOMA, it is the
public policy of the State of Oklahoma to encourage and facilitate an informed citizenry’s
understanding of governmental processes and problems.
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Exhibit 1-7
Oklahoma Open Meeting Act Sections
Section Section subject
301 Citation
302 Public policy
303 Times and places — Advance Notice
304 Definitions
305 Recording of votes
306 Circumvention of act — Teleconferences excepted
307 Executive sessions
307.1 Teleconference Exceptions
308
Meeting between Governor and majority of members of public
body
309 Legislature
310 Legislative committee members attending executive sessions
311 Public bodies — Notice
312 Minutes of meetings — Recording of Proceedings
313 Actions taken in willful violation of act
314 Violations — Misdemeanor — Penalty
Source: Title 25, Oklahoma School Code, as amended,
Forty-Ninth Oklahoma Legislature, First Regular Session, 2003
All public boards of education are required to adhere to the OOMA. Section 307 of OOMA
outlines requirements for executive sessions of School Boards. Violations of OOMA could lead
to members facing criminal prosecution. Accordingly, the EPS School Board convenes executive
sessions only for specific purposes (Exhibit 1-8).
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Exhibit 1-8
Specific Purposes of School Board Executive
Sessions In Accordance with Section 307 of
The Oklahoma Open Meeting Act
Item Description
1 Discussing the employment, hiring, appointment, promotion, demotion, disciplining, or
resignation of any individual salaried public officer or employee;
2 Discussing negotiations concerning employees and representatives of employee groups;
3 Discussing the purchase or appraisal of real property;
4 Confidential communications between a public body and its attorney concerning a pending
investigation, claim, or action, if the public body, with the advice of its attorney, determines
that disclosure will seriously impair the ability of the public body to process the claim or
conduct a pending investigation, litigation, or proceeding in the public interest;
5 Permitting district boards of education to hear evidence and discuss the expulsion or
suspension of a student when requested by the student involved or the student’s parent,
attorney, or legal guardian;
6 Discussing matters involving a specific handicapped child;
7 Discussing any matter where disclosure of information would violate confidentiality
requirements of state or federal law;
8 Engaging in deliberations or rendering a final or intermediate decision in an individual
proceeding pursuant to Article II of the Administrative Procedures Act; or
9 Discussing the following:
a. the investigation of a plan or scheme to commit an act of terrorism,
b. assessments of the vulnerability of government facilities or public improvements to an act
of terrorism,
c. plans for deterrence or prevention of or protection from an act of terrorism,
d. plans for response or remediation after an act of terrorism,
e. information technology of the public body but only if the discussion specifically
identifies:
(1) design or functional schematics that demonstrate the relationship or connections
between devices or systems,
(2) system configuration information,
(3) security monitoring and response equipment placement and configuration,
(4) specific location or placement of systems, components, or devices,
(5) system identification numbers, names, or connecting circuits,
(6) business continuity and disaster planning, or response plans, or
(7) investigation information directly related to security penetrations or denial of services
f. the investigation of an act of terrorism that has already been committed.
Source: Title 25, Oklahoma School Code, as amended, Forty-Ninth Oklahoma Legislature,
First Regular Session, 2003
The EPS agenda notes executive sessions and contains sufficient information for the public to be
aware of an upcoming executive session. The agenda identifies the items of business and
purposes of the executive session, and states specifically the appropriately authorized reason for
the executive session.
A majority vote of a quorum of the members present must authorize all executive sessions.
Except for executive session topics that are required to be confidential by state or federal law,
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any vote or action on any item of business considered in an executive session is taken in the
public session of the board meeting. Each member’s vote must be public and recorded.
A. MANAGEMENT AND ORGANIZATION
A suitable central office organizational structure is essential to the efficient and effective
delivery of services in a school district. Efficient central office organizational structures have the
appropriate spans of control for effective leadership. Lines of authority should be clearly defined
and also shown in the district’s organizational charts. Effective central office organizational
structures encourage communication at all levels. The superintendent of a school district serves
as the chief executive officer and is the person responsible for policy implementation and the
day-to-day operation of the school district.
FINDING 1-1
Interviews with School Board members and Dr. Harold Hayes, the superintendent, reveal a
sincere sense of mutual respect and partnership in working together to improve the district.
Comments from other district staff reinforced the exceptionally effective working relationship
the superintendent and board have. This is Dr. Hayes’s second year in EPS. Despite his short
tenure, staff universally reported that he had made a positive impact on the schools. Several
stated that they had lived in the community for decades and had never seen the schools improve
so much and so quickly. Many noted that the district has made tremendous positive strides within
the past two years under the board and superintendent’s leadership.
COMMENDATION
The superintendent and board exemplify team collaboration in leading district
improvements.
FINDING 1-2
The district’s positive direction and the support of the staff and community are extremely
positive first steps for EPS to build upon. Board members and the superintendent do not work
together to set annual plans. However, some board members said that would be a good strategy
for ensuring continuous improvement. Having written measurable goals and objectives to guide
EPS priorities would enable them to build on their current success. The consensus among most
staff interviewed was that there is no district planning except some facility planning that
occurred before the recent passage of a bond.
Critical areas that would benefit from purposeful district planning include curriculum planning
and professional development to support specific needs for improved teacher skills and student
achievement. The superintendent stated that he believed instructional leadership is the role and
responsibility of the school principal. That strong support of school leadership is commendable;
however, there are elements of planning that must take place at the district level to support what
happens in EPS classrooms. Budgeting time in the school calendar and fiscal resources for
professional development are essential elements of planning that occur at the district level.
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Concerns related to teaching and learning should be identified through regular analysis of student
performance data. From that information, professional development needs can be identified so as
to guide allocation of district resources. The principal reported that she includes last year’s
classroom performance and achievement data in handbooks to help teachers understand their
instructional strengths and student needs. However, without planning at the district level to
support that information, the principal is limited in her instructional leadership responsibilities.
There is also no evidence that teachers understand or have been trained to use data as a basis for
instructional change.
The district has all parts of its Comprehensive Local Educational Plan (CLEP). Chapter I, Article
III of the Oklahoma School Code, Section 31 states that:
As part of the requirements for receiving accreditation by the State Board of
Education, each school district board of education shall adopt a Comprehensive
Local Education Plan once every six (6) years. The plan at a minimum shall
contain the following:
• a school improvement plan,
• a capital improvement plan,
• an alternative education plan, and
• a reading sufficiency plan.
The most recent student performance data contained in the 2010-2015 School Improvement Plan
portion of the EPS CLEP was from 2007-2008. The law states that, “Each school improvement
plan shall include stated goals that clearly delineate educational expectations, and shall be
annually monitored and updated as necessary. The plan shall also include a specific program of
improvement through academic skill reinforcement and/or remediation.” It is essential to update
student performance data when new data is available to be able to improve academic skills
through reinforcement and/or remediation. Additionally, the most recent content updates in the
CLEP documents appear to be from 2006-2007 for both science and social studies. One CLEP
goal relates to parents being involved in selecting district goals with records being kept in the
superintendent’s office. When asked about that, the superintendent stated that they would be part
of the K20 grant with those records being maintained in the principal’s office.
Many school districts across the country are now adopting a “Balanced Scorecard” approach to
strategic planning. The process benefits an organization by tying its vision of the future with
sound business practices, explicit expected employee behaviors, and daily operations that will
achieve desired results. Using the plan, decisions are clearly tied to priorities, related actions, and
employee/community satisfaction. It focuses actions on data, efficiency, prioritized initiatives,
improved communications, and a purposeful connection between the budget and goal
achievement. Exhibit 1-9 shows the process.
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Exhibit 1-9
Balanced Scorecard Logic
Source: Balanced Scorecard Institute,2 September 2008
The nine critical elements of the Balanced Scorecard approach outlined in Exhibit 1-10 are
common to other approaches of strategic planning as well.
2 http://www.balancedscorecard.org/BSCResources/TheNineStepstoSuccess/tabid/58/Default.aspx
Management, Personnel, and Communications Eldorado Public Schools
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Exhibit 1-10
Steps in Creating a Balanced Scorecard Approach to Strategic Improvement
Step One: Assess the district’s Mission and Vision. This process is similar to the SWOT process
used by the Oklahoma State School Boards Association: Identifying the district’s
Strengths, Weaknesses, Opportunities, and Threats.
Step Two: Identify desired results, district values, and perspectives of district and community
stakeholders in a communications workshop.
Step Three: Use elements from Steps 1 and 2 to create Strategic Objectives for the entire district.
Step Four: Create a Strategy Map that links cause and effect and shows how the district uses the plan
to address the identified needs and perspectives of its employees and community.
Step Five: Develop specific performance measures for each of the Strategic Objectives. This activity
also includes identifying specific targets, baseline data currently available or needed, and
benchmarking data that provides evidence of progress throughout the plan’s
implementation.
Step Six: Identify Strategic Initiatives for each of the Strategic Objectives. To ensure that each is
addressed, assign accountability for each to specific staff members and connect to “data
definition tables.”
Step Seven: Begin the implementation process. The Balanced Scorecard Institute uses automation for
quick, easy access to data for those responsible for each task.
Step Eight: Replicate the district-wide scorecard in support unit scorecards, and then team and
individual scorecards for accountability, alignment, and results throughout the
organization. This process translates daily work into goal achievement that is tied to the
district’s vision. At every level, people are responsible for specific performance
measures.
Step Nine: Evaluate scorecards to inform the district of the effectiveness of its strategies, the
appropriateness of selected performance measures, the desired links between budgetary
decisions and district strategies, and changes in the environment.
Source: Adapted from the Balanced Scorecard Institute,3 September 2008
The National School Board Association website4 also provides tools to assist in developing
strategic plans.
RECOMMENDATION
Develop a comprehensive strategic plan for the district and ensure that all parts of the
CLEP are included in the plan.
3 http://www.balancedscorecard.org/BSCResources/TheNineStepstoSuccess/tabid/58/Default.aspx
4 http://www.nsba.org/sbot/toolkit/spt.html
Eldorado Public Schools Management, Personnel, and Communications
Having all parts of the CLEP together will enable the district to compile relevant data for its own
purposes, as well as for planning and state reporting. The superintendent should work with the
board and administrative team to research a strategic planning process. The team should use the
selected process to develop a comprehensive strategic plan. The strategic plan should clearly
state the organization’s mission and set goals and objectives for EPS students, identify explicit
measurements for monitoring progress, and assign responsibility to individuals or groups. Once
it is board approved, EPS leaders should share the plan with the staff and community. It should
become the primary guide for making decisions and policies, as well as allocating resources. It
should be aligned with state CLEP requirements and meet their timeline requirements. Beyond
this, EPS should aspire to be broader in scope than simply complying with CLEP requirements.
Actually integrating all district goals into the intended single comprehensive plan enables district
staff to unite all actions to improve the district as a whole. This would better ensure that goals are
focused and achieved. As part of the plan the district should examine an array of district data
beyond those required by law and address problems the data reveal. The plan should assign
responsibility and dates of completion for tasks with interim benchmarks. When the website is
up, the CLEP should be available on it.
The strategic planning process is an excellent opportunity for the district to solicit input from
staff and the community. Also, having the principal as a key player in this planning would be a
solid training foundation for the principal to become superintendent when Dr. Hayes retires.
The National School Boards Association (NSBA) advises that for outreach in planning, a school
district should:
• Connect with all community members.
• Gather community perceptions about district issues.
• Use collected data to reexamine their long-term goals and strategic plans.
The superintendent should ensure that the process for developing the district’s comprehensive
strategic plan unites the entire staff toward reaching district goals. He should require regular use
of improvement plans with due dates for identified activities, scheduled reports to the board, and
progress reports in administrative meetings.
Another choice is to contract with the Oklahoma State School Boards Association (OSSBA) to
guide them in the first steps. They offer services according to what districts want them to do with
costs determined accordingly. OSSBA will either do all of the work of developing the plan for
the district or train district representatives.
FISCAL IMPACT
This recommendation can be implemented with existing resources if the district chooses to do it
with employees and community members. If it opts to contract with OSSBA, OSSBA staff
estimates it will cost between $1,500 and $5,000. Those costs are based on other districts’
experiences and the level of support and assistance desired. The minimum estimated cost of
$1,500 for OSSBA to train the principal to lead the planning process is used in this fiscal impact
estimate.
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Recommendation 2010-11 2011-12 2012-13 2013-14 2014-15
Develop a district
comprehensive strategic
plan
($1,500) $0 $0 $0 $0
FINDING 1-3
A review of district records and conversations with board members reveal that all board
members have attended numerous hours of state training. Exhibit 1-11 shows the hours that each
board member has accumulated since election and/or re-election. It shows that even the two
newest members have earned more than half of the points required by law. Dr. Hayes arranged a
whole board workshop on Superintendent-Board relations last year and has another scheduled
later this year. All board members had positive comments about the benefits of the training to
them individually and the board as a whole. Dr. Hayes plans to ask the board for input on the
topic of this year’s training at the next scheduled board meeting.
Exhibit 1-11
Board Member Continuing Education Points
Board Member
New
Points
Total
Points
Required
Date
Elected or
Appointed
Term
Expires
Jackie Kenmore (New) 2010 2013
Bryan Adams (Appointed) 2009 2011
Tim Springs (Incumbent) 2009 2014
Kevin Hill (New) 12 12 2010 2015
Cory Robinson (New) 2007 2012
Source: EPS Records, October 2010
For five-member boards OSC requires that board members receive a prescribed number of hours
of instruction within 15 months of either being elected or re-elected. Chapter 1, OSC, Article V,
Section 57, paragraphs A and B state:
A. Each School Board member shall “within fifteen (15) months of election or
appointment as a member of the district board of education” complete “at least
twelve (12) hours of instruction on education issues, including school finance,
Oklahoma education laws, and ethics, duties and responsibilities of district board
of education members.”
B. An incumbent “shall not be required to comply with the provisions of
subsection A of this section but shall be required to…complete six (6) hours of
instruction within fifteen (15) months following his or her election emphasizing
changes in school law, particularly changes in the areas set forth in subsection A
of this section.”
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Additional requirements are described in Chapter 1, OSC, Article V, paragraph A regarding
continuing education hours needed for all board members depending upon their term of office.
Section 58 Survey results in Exhibit 1-12 show that parents and staff largely agree that board
members know and understand the educational needs of the district.
Exhibit 1-12
EPS Survey Results
Survey
Group Survey Statement Agree
No
Opinion Disagree
Staff The School Board understands the needs
of the district. 82% 18% 0%
Parents School Board Members know and
understand the educational needs of the
district
83% 17% 0%
Source: Prismatic Survey Results, September 2010
COMMENDATION
The Eldorado School Board and superintendent have a strong commitment to training,
making them well-prepared to lead the district.
FINDING 1-4
The district currently has few accountability systems in place. As noted previously, goals for
student achievement, the distribution of resources, and development of timelines would help to
ensure progress. Examples of areas in which accountability could be improved throughout the
district include:
• training beyond bloodborne pathogens and CPR to include offerings that would improve job-related
skills of both certified and support employees;
• the availability of job descriptions to help staff understand expectations and upon which
evaluations can be concretely based;
• curricular planning, formal discussion, and a cohesive district-level plan to improve teaching
and learning;
• training for the child nutrition director to supplement the existing training manual, which is
not comprehensive in explaining all job responsibilities.
RECOMMENDATION
Embed accountability into district operations so that all district activities are aligned with
established district goals.
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The saying, “What gets measured gets done,” should be a guiding principle behind district
operations regardless of district size. When people know that there will be follow-up after they
are assigned tasks, they act. When they know the specific expectations for their work and that
they will be held accountable in regular evaluations, they deliver. Accountability should not be
viewed as a system of negative reinforcement, but rather as a way to make clear what one is to
do, how one should do it according to district procedures, and that there are both positive and
negative repercussions for meeting or failing to meet expectations. It ensures consistency. The
entire premise underlying No Child Left Behind is to increase accountability for results in
schools. Douglas B. Reeves’s Accountability for Learning explains how to make accountability a
constructive decision making process that improves teaching, learning, and leadership.
The superintendent and board should examine recommendations in this performance review and
identify all areas lacking accountability. They should direct staff to develop procedures,
measurements, guidelines, and reporting schedules to the board. This will ensure that
expectations are clear, periodic reviews are conducted, and consequences—both positive and
negative—occur. The board could consider adding incentives to the superintendent’s contract for
improving test scores, as a method to emphasize a district focus on student achievement. The
consulting team suggests beginning with job descriptions since they cross all areas investigated
in this report.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
FINDING 1-5
Interview participants and board meeting minutes reveal that board meetings often last between
two and five hours. Several staff members who attend live at least an hour away as well. Half of
the year, meetings also start at 8 p.m. Lengthy meetings that start that late could result in hasty
decisions on substantive issues made by tired board members.
Board members receive comprehensive background packets of material to ensure that their
decisions are well informed. The board indicated they value receiving the wealth of information
contained in these packets. Apparently part of the reason for lengthy meetings, though, is that
much of the time spent during the meetings reiterates background packet information.
Re-thinking the way that time is spent during board meetings so that information is not repeated,
but only pertinent questions are answered, would better focus time on deliberation of critical
issues. Meeting times could then be reduced to at most one to two hours. Another possible way
to expedite meetings would be to hold them early in the morning so that the school schedule
would help focus discussion.
RECOMMENDATION
Revise time spent on discussion during board meetings to focus it on decision making and
answers to board member questions, instead of reiteration of previously available
information.
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District leaders should ensure that reports at board meetings add to, instead of reiterate,
information previously provided to the board so that the board can focus more on its decision
making role.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
FINDING 1-6
The School Board does not use a consent agenda. A review of selected board agendas and
minutes show that some items that are similar in nature such as some financial items are
consolidated into one action unless a board member requests that one is pulled for discussion.
There are, however, many other items that are similar, but routine in nature, that are voted on as
individual items. This consumes board time, possibly detracting from time available for deeper
discussion of more substantive issues.
The sample board meeting agenda format provided in the OSSBA handbook consolidates matters
of a routine nature, yielding an agenda that is more clear, concise, and easily understood. Exhibit
1-13 provides an excerpt sample format. According to an OSSBA staff member, many
Oklahoma boards have gone to consent agendas because they “expedite meetings and eliminate
the micro-management issue.”
Exhibit 1-13
School Board Meeting Agenda Format for School Board Members and Administrators
Agenda Item
• Call to order and recording of members present and absent
• Consent Agenda, including the minutes, monthly financial and treasurer’s reports, and acceptance
of donations
• Consent Agenda approved by one vote unless any Board Member desires to have a separate vote
on any or all items
• Vote to approve purchase orders – encumbrance numbers xx through xx
• Vote to approve warrants numbered xx through xx
• Vote to approve building fund warrants numbers xx and xx
• Superintendent’s Report
• Vote on policies
• Assistant Superintendent’s Report
• Vote to approve action items such as fund raising, lease agreements, special travel, and state
required reports
• Vote to convene executive session, if appropriate and scheduled
• Vote to discuss agenda items as presented
• Vote to return to open session or vote to adjourn as appropriate and scheduled
Source: OSSBA Open Meeting Law Handbook
RECOMMENDATION
Update the Board meeting agenda format to incorporate a consent agenda.
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Using the consent agenda format outlined in the open meeting law handbook will make the
agenda more easily understood. It will consolidate routine matters and separate them from the
independent action items.
The superintendent should direct the board clerk to review the sample format outlined in the
open meeting law handbook, review board meeting agendas from other school districts, and
develop an agenda format more consistent with the example provided in Exhibit 1-13. The
superintendent should work with the Board of Education to obtain input and establish the new
agenda format.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
FINDING 1-7
Board meetings do not have set schedules where members receive information about curriculum
and instruction, programs in the district, or staff and/or student recognition. Occasionally, the
principal reports on programs or teachers present students who have excelled in competitions,
but those recognition and curriculum-related reports are not regularly scheduled. Minutes of
board meetings show that the superintendent and principal have scheduled reports, but no
attachments were included in the board packets that were examined.
Setting time aside for regular recognition of students, staff members, or community members for
their contributions or outstanding achievements would not take much time from the decision
making part of the meeting and could make a positive difference in board knowledge, staff and
student morale, and community awareness of good things taking place in the local schools.
RECOMMENDATION
Commit a portion of board meetings to reports on current educational programs and
achievements, and to the recognition of outstanding accomplishments and contributions.
Scheduling time for these purposes would have three positive results. It would: (1) allow the
board to learn about curriculum, instruction, and programs; (2) foster better board relations with
faculty, students and the public; and (3) inform the public about positive activities in the schools.
Adding quarterly recognition would highlight staff and student contributions and achievements.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
FINDING 1-8
Since arriving in EPS, the superintendent identified the age of board policies as an immediate
need to be addressed. One set of policies dated back to 1985 with the most recent group of
policies having been revised in 1997. Consequently, board policies have not been used as the
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basis for district decision making. All board members and the principal have copies of the policy
manual on a CD with the superintendent having the only hard copy in the district.
The superintendent took a very comprehensive approach to policy revision, working closely with
OSSBA and the Organization of Rural Oklahoma Schools (OROS) to identify essential policies.
He met with the legal staffs of both organizations to ensure that the policies he proposed to the
board met the legal standards and were actually essential to district operations.
COMMENDATION
The superintendent and board are commended for updating the district’s entire policy
book.
FINDING 1-9
Board members and the superintendent stated that the board had approved the new and/or revised
policies. The superintendent even provided the date of September 1, 2009. However, it is not
clear from the copies of policies that were provided to the consulting team that they were
actually board approved. Nor are policies available to students, staff, or the public on the district
website.
Many policies in each chapter provided reference to either Senate or House bills in particular
sessions or OSC, but very few state and adoption dates by the EPS School Board. In order for the
board, employees, or the public to know that the policies they are following are, in fact, EPS
board approved, the date of approval or revision must be clearly noted on the policy or
regulation. This also enables boards to have a clear understanding of a policy’s age and,
therefore, the need for review and/or revision. The superintendent stated that he did not feel the
need to subscribe to OSSBA policy services, as it is not a cost-effective expenditure for the
district. OROS sends the majority of changes to districts on a CD, which the superintendent then
uses as an addition to the policy handbook.
RECOMMENDATION
Ensure that all policies that are approved by the School Board clearly denote the date of
the board action and continue annual review of policies and procedures.
The superintendent and board should immediately implement this recommendation for
subsequent policy adoptions and revisions. In addition, the superintendent should direct his
secretary to correlate board minutes with the dates of the adoption of the recently revised policies
and procedures, and to add the date of approval to each. Policies should also be placed on the
district’s website for viewing by staff, students, and the public.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
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FINDING 1-10
The principal who is responsible for the education of all children in EPS from PreK through 12th
grade has only been an administrator for two years. This is the first position she has ever held as
a principal. She acknowledges that she has much to learn, but demonstrates a strong desire to
learn and grow as a school administrator. Her learning to date has been primarily through job-embedded
experience, as well as mentorship by Dr. Hayes.
The superintendent stated that he believed it was the responsibility of the principal to provide
instructional leadership in the district and that he gave her the autonomy to do so. While she
appreciates that trust, she has not yet been provided much opportunity for specific leadership
training, particularly in the area of budgeting. Helping her to understand the strong correlation
between district planning, budgeting, and student achievement is essential to her effective
leadership as a principal and member of the district leadership team.
Exhibit 1-14 shows that nearly 75 percent of the staff considers the principal an instructional
leader. Taking into account that this is her second year as principal, this reflects positively on
her. It also, however, shows a need for her to participate in additional professional growth
opportunities both in the district and outside it.
Exhibit 1-14
EPS Survey Results
Survey
Group Survey Statement Agree
No
Opinion Disagree
Staff The principal is an effective instructional
leader. 71% 24% 6%
Source: Prismatic Survey Results, September 2010
In such a small district, it is easy for there to be brief, informal conversations between the
superintendent and principal regarding instruction and leadership related issues. The consulting
team witnessed many such informal conversations. However, informal daily communications
cannot take the place of organized, regular meetings. The superintendent and principal should
schedule weekly time together to deeply discuss educational and management issues such as:
• curriculum and instruction;
• assessment;
• programs;
• student progress and needs;
• short and long-term educational planning;
• training needs; and
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• student discipline.
This will help mold the principal as a stronger instructional leader, capitalize on two minds
thinking instead of just one, and enable her to plan more effectively based upon student and
teacher learning needs.
RECOMMENDATION
Establish regular weekly meetings for the superintendent and principal to discuss key
educational topics, plan for the district and develop written policies and procedures for
each area of responsibility assigned.
The superintendent and principal must meet regularly and plan so that all staff works together on
goals to improve the district and student achievement. They should make a strong effort to
protect their time together during these meetings. As needed, they should include other staff so
that instruction, curricula, and support services for all students in the district are aligned. Each
should have the ability to contribute to the meeting agenda. Topics should include issues from
the above bulleted list, as well as identification of board presentations and other items of
immediate and long-range concern. They should also examine student data together as a regular
part of these meetings.
FISCAL IMPACT
This recommendation can be accomplished with existing resources.
B. PERSONNEL MANAGEMENT
Personnel costs typically represent the largest expense in school districts. As a result, efficient
and effective management of human resource functions is critical to the overall effectiveness of a
district. Typical tasks performed by the human resources function of a school district include:
• recruiting employees;
• overseeing the interviewing, selection, and processing of new employees;
• retaining employees;
• processing promotions, transfers, and resignations;
• determining and maintaining compensation schedules;
• planning and forecasting personnel needs;
• maintaining complete employee records;
• developing and maintaining job descriptions;
• managing the employee evaluation process;
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Management, Personnel, and Communications Eldorado Public Schools
• handling employee complaints and grievances;
• developing personnel policies; and
• ensuring that the employer follows all laws and regulations.
Personnel Records
By designating a secure area and assigning individuals to maintain records, a district reduces its
risk of releasing confidential information. Storing confidential records in locked files or secure
storage closets, keeping the records locked up unless accessing the files for a business reason,
and ensuring that the files remain in their designated areas are just a few suggestions to make
sure that confidential records are safe and secure. The level of confidentiality determines the
degree of security required for storage. The following is a list of personnel records with the
highest level of confidentiality:
• medical information;
• alcohol and drug testing information;
• criminal history record information;
• teacher and administrator appraisal records;
• commissioned peace and security officer records; and
• social security numbers.
FINDING 1-11
The district does not have a formal process in place to orient, train, and otherwise support new
staff members. There does not appear to be a process that helps new employees understand their
roles, responsibilities, or district policies and procedures. One employee who has been in the
district for three years told the consulting team that the person who held her job previously had
worked with her for several months before she left the district. This appears to be the exception
rather than the rule in EPS.
Businesses with good retention of staff carry out practices that support new staff, thereby
improving the new employee’s potential to fit-in and experience job success. That, in turn,
reduces costs by lowering the frequency of staff turnover.
RECOMMENDATION
Create systematic processes that provide support and direction for all staff members.
Planned mentoring experiences for new staff members help them know and understand district
expectations, policies, and procedures. Coaching of existing staff placed into new roles improves
their efficiency and effectiveness. Training and carefully planned learning experiences for new
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administrators are essential, assisting them in becoming the kind of instructional leaders who can
lead in today’s educational climate and inspire teachers to improve student achievement.
FISCAL IMPACT
This recommendation can be accomplished with existing resources.
FINDING 1-12
The EPS personnel records housed in the superintendent’s office are secured in fireproof
cabinets and locked at all times. When the consulting team requested to see files in the central
office, the person complying with the request took keys from a location separate from the
cabinets and unlocked the file cabinet to provide access. Procedures are in place to secure the
office when the secretary is at lunch or out of the office for other reasons. Taking into account
the few staff members within the district, they are making every effort to provide security for
personnel records.
COMMENDATION
Eldorado Public Schools has uniform processes to maintain the security of personnel
records.
FINDING 1-13
Many people interviewed stated that the team that has been created within the past two years of
the superintendent, the principal, and the superintendent’s secretary is extremely effective and
beneficial to the district. The secretary is scheduled to go out on maternity leave soon.
Recognizing the key role that the secretary plays in keeping the district running smoothly,
district administration has made arrangements to have her office temporarily moved to her house
so that she is able to continue working while on leave after the baby is born.
COMMENDATION
The superintendent and board have planned ahead to make accommodations to keep the
district running smoothly during the secretary’s maternity leave.
FINDING 1-14
Two secretaries in the central office shoulder all responsibilities for clerical support for district-wide
functions. Their duties are separate and no cross-training occurs. This gap in shared
knowledge of office operations is not efficient or effective. The district has the benefit of having
the people who held both positions still in town as possible substitutes in cases of long-term
absences. If they are not available, then district operations are likely to be temporarily delayed
when a secretary is absent. There is not yet a systematic plan for having all functions covered in
the case of an absence.
Staff interviewed noted a concern about having sufficient controls, which is always a challenge
in a district with so few staff. Few of the tasks that the two clerical staff conduct are
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Management, Personnel, and Communications Eldorado Public Schools
complementary and therefore do not provide cross checks of the other’s work. A system that
helps each staff member know the processes others use would keep all district operations running
smoothly until an absent staff member returns. It appears that little communication about job
tasks exists among the central office staff.
RECOMMENDATION
Address the need for cross-training and develop controls for central support staff
responsibilities.
The district should create a system for job shadowing of central office support staff and set aside
time for cross-training. With only two staff members supporting key district operations, it is
essential that both of them know how to perform the responsibilities of the other. That way,
when one is absent, especially for an extended period of time, district business can continue
without interruption. The superintendent should direct both central office staff to develop and
implement cross-training and identify with him areas where controls are essential.
The superintendent should also develop methods for controls, as much is possible in a small
district. Each office staff member should identify key functions and a weekly, monthly, and
annual calendar for each. They should become familiar with each other’s’ important documents
and forms as well as regulations regarding their job functions. If available, they should also each
have an updated copy of both job descriptions. Cross-training sessions could be held during the
slower summer months.
FISCAL IMPACT
This recommendation can be accomplished with existing resources.
Compensation
School districts employ two types of full-time employees, described as exempt employees and
non-exempt employees. Exempt employees include administrators and professional staff
members such as counselors and teachers. Exempt employees are paid a salary and do not have
to account for their time in detail.
Districts pay non-exempt employees on an hourly basis and must account in detail for their time.
Typically, non-exempt employees complete timesheets on a periodic basis or are required to use
a time clock. Non-exempt employees also have a maximum number of hours they may work at
their rate of pay. If the hours worked exceed this amount, the employee is entitled to overtime
pay, according to the Fair Labor Standards Act (FLSA). Non-exempt employees include teacher
assistants, custodians, child nutrition workers, and bus drivers.
FINDING 1-15
There are no schedules for determining the salaries of non-instructional staff that were hired
based upon their years of experience, their skills, and knowledge brought to their jobs. The
district employs a number of personnel at minimum wage, which is the law, but does not
encourage either a desire to become proficient or an attitude of commitment to the job. Interview
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participants stated that the superintendent determines a new employee’s salary, with at least
minimum wage as the base. The secretary also assists by gauging the experience a new employee
brings to the job. There are a few non-exempt staff members who earn above minimum salaries,
but many, regardless of length of service, only earn minimum wage.
For teachers, all districts in Oklahoma must use as a base, the state salary schedule. This
schedule defines teacher compensation based upon years of experience and educational
attainment. Using a similar clear cut scale for non-exempt employees would enable employee
groups to better understand the factors that affect their compensation, such as years of
experience, certificates for training received, or educational level. It assures them of equitable
treatment relative to their peers and can contribute to improved morale and heightened
productivity.
Without such a schedule, employees have no assurance that they are paid similar to other
individuals within the organization or in the same position. Not understanding the rationale for
the starting salary or raises can lead to lower employee morale and lower productivity. Many
school districts have non-exempt employee salary schedules that provide more equitable pay
within departments or throughout the district.
RECOMMENDATION
Develop a salary schedule for non-exempt employees and establish a clear cut procedure
for staff to earn raises.
The superintendent should work with the principal and secretary to create a salary schedule for
non-exempt employees. Factors could include years of experience, demonstrable skills, or
certificates for training received. It should be board approved, shared with district employees,
and updated periodically. Being the individual who is solely responsible for making decisions
about who receives raises places the superintendent in an awkward position. Developing policies
and procedures regarding salaries and raises will ensure staff of fairness of treatment and prevent
a superintendent from being perceived as acting preferentially.
For example, Wetumka Public Schools developed a salary schedule for non-exempt personnel.
The salary schedule consists of 20 steps and a set amount assigned to each step based upon job
title. This salary schedule also easily allows the district to compensate newly hired employees for
the skills, knowledge, and experience that they bring to their positions. When new non-exempt
personnel are hired, they can request higher placement on the salary schedule based upon
validation of their expertise and experience. These requests are approved by the School Board on
a case-by-case basis. This system provides clear, equitable compensation standards for all staff in
the district.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
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Management, Personnel, and Communications Eldorado Public Schools
FINDING 1-16
There are few job descriptions for positions in EPS. The only job descriptions provided for the
consulting team were for a superintendent, principal, teacher, library media specialist, and
counselor. Even though a job description for teachers exists, one person stated that there was
none. The one that was provided the consulting team appears to have been revised at some point,
but does not reference either technology skills or making accommodations for students with
special needs. This is strong evidence of a need to update and raise awareness of job descriptions
in EPS.
Few people interviewed could produce a job description for their position. Others either stated
that they thought there was one in the EPS policy book or that they thought they had been given
one when they were employed. Since the maintenance director is a new position for the district, a
job description was developed for that position prior to hiring. Having clear job descriptions with
specific tasks and responsibilities helps the district by:
• reducing duplication of effort;
• improving staff morale because employees know what is expected of them;
• strengthening accountability for work production; and
• providing the district a means of tying annual evaluations to the duties outlined.
RECOMMENDATION
Develop job descriptions for each position, explain them to employees, and link them to
performance evaluations.
The superintendent should work with designated district staff to update the district’s job
descriptions. Job descriptions serve as an important management tool for setting forth minimum
qualifications, knowledge, and skill and ability requirements. A job description constructed to
today’s standards should include:
• description of general duties and responsibilities;
• description of specific duties and responsibilities;
• description of other duties and responsibilities;
• minimum credentials, training and/or experience;
• performance aptitudes;
• physical demands, work environment, and ADA compliance;
• title of evaluator and performance evaluation criteria;
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• title of supervisor and chain-of-command above and below the position;
• pay grade or salary line;
• overtime status, extra duty pay, etc.;
• terms of employment; and
• date the job description was developed or last revised.
The School Board should approve all job descriptions and administration should distribute them
to all EPS staff. District leaders should incorporate them into the staff evaluation process and
they should be reviewed for possible updates annually.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
Professional Development
Continuing professional development is vital for all employees. It helps ensure a knowledgeable,
well-trained and safe work force are employed in all areas. It reinforces employees’ sense of
value to the organization and helps prepare them for advancement.
John H. McConnell, in How to Identify Your Organization's Training Needs: a Practical Guide
to Needs Analysis, gives leaders guidance in determining “the training requirements of everyone
from newly hired, recently promoted, or just-transferred employees, to those who need training
as a result of changes in operations, technology, or systems in the company.”
FINDING 1-17
EPS does not have a sustained, high-quality professional development plan for any group of
employees. Teacher training appears to have been driven by topics offered through the Western
Tech Center in Altus, rather than analysis of data regarding student/teacher needs or a
needs assessment aligned with set district priorities. A K20 Center and a GEAR UP grant also
provide training opportunities for staff, but again, they are not related to specific district goals or
data analysis. No one interviewed provided any specific information about follow-up that is
occurring in classes to ensure that any training has become embedded in teacher practice. One
EPS staff member expressed a desire for a more planned, purposeful approach to professional
development.
Several interview participants commented that non-instructional staff regularly receives training
on topics such as bloodborne pathogens and CPR. The bus driver does receive training at the
Tech Center in Altus. Interview comments and a review of personnel records also showed ample
training for secretarial staff. However, the consulting team found little evidence of any other job-related
training for any other group of employees in the district. Specific examples the consulting
team found include:
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Management, Personnel, and Communications Eldorado Public Schools
• no training provided to child nutrition workers. The manager/director said that she was aware
of state training opportunities, but that she had not been able to get away to attend them; and
• no training for the maintenance director, but he has only been employed for two months.
RECOMMENDATION
Expand the district’s approach to professional development to include regular training for
all staff based upon needs assessments related to job responsibilities and student
achievement.
Professional development is vital for all employees. It helps ensure a knowledgeable, well-trained,
and safe workforce in all areas of operation. It reinforces employees’ sense of value to
the organization and helps prepare them for advancement. The district should make personal and
professional growth of all employees one of its goals.
The superintendent and principal should upgrade the professional development plan for the
district. In doing so, they should review state statutes pertaining to required professional
development and also consider teacher evaluations, student test results, and overall district goals
as guides to future professional development offerings. State-mandated training such as “blood-borne
pathogens” should be offered online to better use staff time and free employees for more
job specific training. In addition, the district should plan to create a secure Intranet link to the
district website to add a professional development page to a password protected portion of the
website so district staff may access their professional development records.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
C. COMMUNICATIONS AND COMMUNITY INVOLVEMENT
School districts are a vital part of communities, often associated with a community’s identity,
sense of pride, and quality of life. This is especially true in smaller communities. In order to
strengthen this role, school districts should develop effective communications and community
involvement programs that lead to a more informed and engaged staff and community. Research
demonstrates that community outreach benefits both the community and the schools.
The primary role of communications in a school district is to convey a message and image
consistent with board policies that are implemented through procedures established by the
superintendent and district staff. Critical components of communications include strategies for
externally communicating with the community and internally communicating within the school
district.
Two-way communications are vital to the success of a district. Effective communications lead to
an informed staff and community, support for programs, and an atmosphere of openness. They
also contribute to effective leadership with the board and superintendent serving as a leadership
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team. Ineffective communications results in confusion, lack of support, conflicting messages and
decision making, and a sense of detachment within the district.
Effective community involvement programs should address the unique characteristics of the
school district and the community. These programs can significantly affect citizen perceptions of
the school system. Effective programs will rally public support and involvement. That will result
in parent and community volunteers, public participation in the decision making processes that
affect the schools (e.g. bond and board elections), and productive business and community
alliances.
FINDING 1-18
The district website is a universally reported weakness in the district’s communications
strategies. Reports reflected that prior to revision this year, the EPS website was not a positive
reflection on the district or community. It did not offer visitors meaningful information about the
district, essentially did not function, and, in one person’s words, was “horrid.” Many interview
participants, however, remarked that plans to improve the district website are underway. Two
teachers, who are sharing a stipend for extra duty in technology, have used new software to
revise and update the site, which has not yet been launched. Some plans mentioned for the future
include having a link for the Parent Teacher Student Organization (PTSO) that the public could
click on to learn of their activities and read updated bulletins.
Exhibit 1-15 shows responses from parents, staff, and students that reflect the need to improve
the district’s web site as a means of communicating with both the public and other school
stakeholders.
Exhibit 1-15
EPS Survey Results
Survey
Group Survey Statement Agree
No
Opinion Disagree
Parents The district website is a useful tool for me
and/or my child. 52% 35% 13%
Students The district website is a useful tool for me. 24% 41% 35%
Staff The district website is a useful tool for
staff, parents and students. 13% 19% 69%
Source: Prismatic Survey Results, September 2010
Participants interviewed stated that a concerted district communication approach had been a key
tool in passing the bond issue. However, they also identified barriers to improved parent
participation but no plans to address them. Decades of research demonstrate the impact that
active parents have on student achievement; thus, developing communications processes beyond
an improved website is essential for the district.
RECOMMENDATION
Improve the EPS website as a part of an overall public communications strategy.
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It would be beneficial for EPS to use an improved district website as an avenue to provide
important information to the students, parents, staff, and the public about the schools and their
activities and programs. An expanded website should include a school page, links to athletic
events and extra-curricular activities, and calendars and a web-based school newsletter.
Districts with effective websites include links to historical board minutes and agendas, board
policies, and handbooks, at a minimum. They also contain information about recent news,
curricula, and links to state standards. Others have interactive and password protected links to
evaluation forms and professional development records. Chapter 5 of this report includes some
criteria for an effective school district website, as developed by Oklahomans for Responsible
Government, which would be helpful in efforts to continue to develop the website.
The EPS website should only be one tool in the district’s overall public communications
strategy. The district should develop specific approaches to reach out to parents and the public
and involve them in the school district beyond the website. Continuing to add information and
school links could encourage communication by providing opportunities for parents and
businesses to become school volunteers or make donations of time, in-kind services, or funds to
the district. Other considerations for inclusion are: pictures and email addresses for the board
members, and information on the superintendent and the principal; notices of upcoming parent-teacher
conferences; lists of teachers and support staff, and email addresses for each; and
information regarding the existence, meeting times, dates, and activities of clubs and
organizations. An alumni link could also promote the achievements of EPS graduates, help them
stay in touch, and encourage them to support district needs.
A district developed Intranet for the EPS staff could be used to further facilitate internal
communications. The district’s policy manual and employee and student handbooks should be
available online for easy reference. District employee evaluation instruments could also become
available as password protected communications tools between administrators and their staff. As
the district expands its website to include additional features, it will become an invaluable
communication tool for students, staff, and the community, keeping them informed and
enhancing stakeholders’ involvement in the district.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
FINDING 1-19
Eldorado reports challenges in the area of parental engagement just as many other districts across
the country face. While few parents volunteer regularly in the school, there is a core of them who
will assist in a variety of capacities when asked. Several board members noted an active Parent
Teacher Student Organization (PTSO) that is well organized, advertises on the district billboard
located inside the school, and activates parents when called upon. Nonetheless, everyone
interviewed acknowledged that only a small percentage of parents were involved in the school.
The district has no formal process for parental engagement or soliciting, training, and using
volunteers in the schools and classrooms.
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The percentage of EPS students (26%) who live in a single parent home or no parent situation is
higher than all but one of the peer districts. Another nine percent of EPS students are new each
year. These facts make parent involvement difficult but also make it critical for the district to
develop innovative ways to reach out to parents and involve them in their children’s education.
A volunteer movement to restart the high school baseball team is underway. This is a positive
development and the kind of activity that can build community and generate more interest in
helping with the school.
While Eldorado’s rate of parent-teacher conference attendance at 73.4 percent, according to the
Office of Accountability’s 2009 District Profile, is higher than the state average of 72.1 percent,
it is lower than three of its peers. Felt reported a 100 percent attendance rate last year. Exhibit 1-
16 shows a comparison of EPS and peer district attendance at parent-teacher conferences. EPS
has the second lowest attendance rate of all peers reporting.
Exhibit 1-16
Comparison of Eldorado and Peer District
Attendance at Parent-Teacher Conferences
District Percent of Parents Attending at Least
One Parent-Teacher Conference
Eldorado 73.4%
Blair 85.0%
Duke 88.1%
Felt 100.0%
Olustee 70.1%
Ryan FTR (Failed to Respond)
State 72.1%
Source: Office of Accountability, Profiles Database
Exhibit 1-17 shows that staff and parents alike do not have a strong feeling one way or another
about the extent to which parents are involved in district decision making.
Exhibit 1-17
EPS Survey Results
Survey
Group Survey Statement Agree
No
Opinion Disagree
Staff District stakeholders provide input into the
budgetary process. 41% 47% 12%
Parents Parents play an active role in decision making
in our schools. 58% 38% 4%
Source: Prismatic Survey Results, September 2010
Joyce Epstein at Johns Hopkins University and others have documented research showing the
positive effect that strong parental involvement has on schools and student achievement:
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Page 1-32 Prismatic Services, Inc.
• 50 to 85 percent of the variance in achievement scores, IQ, or verbal ability can be attributed
to parent, family, and home environment variables;
• parent education programs, especially those that train low income parents to work with their
children improve how well students use language skills, perform on tests, and behave in
school; and
• many studies have found that when parents become involved in school activities, not only do
their attitudes improve, but also those of their children. Student achievement rises as well.
RECOMMENDATION
Develop a coordinated volunteer program that promotes parent and community
involvement in the district’s schools.
EPS should develop a volunteer program that promotes parent and community involvement in
the district. The superintendent should form a committee that includes administrators, teachers,
parents, and community members to develop this program. The program should seek consistency
in policies and practices throughout the district and should also be formally approved by the
School Board. It should be flexible in thinking of opportunities for parents to be involved outside
the traditional concept of classroom volunteering.
The National Parent Teacher Association’s Seven Steps to a Successful Volunteer Program5
provides useful information for creating and maintaining an active school volunteer program.
EPS should use these seven steps as a guide in developing their own program:
• assessing the volunteer needs each school has;
• working with and training, principals, teachers, and school staff on effectively using and
supervising volunteers;
• setting goals and objectives for volunteer assignments;
• recruiting volunteers;
• training and orienting volunteers;
• training and recognizing volunteers, and
• evaluating volunteer performance and program success.
FISCAL IMPACT
This recommendation can be implemented with existing resources.
5 http://www.pta.org/3549.htm
Chapter 2:
Instructional Delivery
Chapter 2
Instructional Delivery
This chapter examines the instructional delivery of Eldorado Public Schools (EPS) in the
following sections:
A. Instructional Delivery and Student Performance
B. Professional Development
C. Gifted and Talented Education
D. Special Education
E. Career and Technology Education
F. Guidance and Counseling
The primary purpose of any school system is educating children. Effective instructional delivery
is based upon the district’s mission to educate students and require policies and procedures to
direct the instructional process, provide well designed programs to meet the needs of all students,
and provide resources to support program implementation. The monitoring and evaluation of
program effectiveness based upon student performance data is also essential.
School districts offer educational services to students through a variety of programs including
regular education programs and special programs. Special programs are designed to provide
quality services for certain student populations, such as those in Gifted and Talented Education,
Special Education, and Career and Technology Education.
A. INSTRUCTIONAL DELIVERY AND STUDENT PERFORMANCE
Managing the instructional process to ensure academic success for all students is the
responsibility of the school district. A district’s instructional program along with its allocation of
resources, are the means by which a district attempts to meet the educational needs of all
students. A well designed and managed process for developing curriculum and directing
instruction, collecting assessment data to evaluate and monitor programs, and providing the
resources needed to support educational efforts is essential if a district is to meet the needs of its
students.
Curriculum development and instructional delivery are critical components of student learning.
The presentation of materials, concepts, skills, and new ideas greatly affect acquisition of
knowledge. Curriculum content and instructional strategies should be properly aligned and
regularly evaluated in order to promote improvement of student performance.
Oklahoma School Boards and superintendents should provide principals and teachers with the
tools necessary to consistently deliver the state adopted curriculum, Priority Academic Student
Skills (PASS), and to prepare students to be successful on state mandated assessments. Districts
should provide curriculum maps that clearly define standards and learning objectives for each
subject and grade level so that teachers know the content expectations and instructional timelines
for student mastery of objectives. Now that the new mission for the nation is “learning for all,”
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the principal and teachers, working collaboratively, are responsible for the consistency of
curriculum implementation on the campus, the quality of the instruction in the classroom, and
student performance.
Starting in 1998, Tim Waters, Ed.D., Robert J. Marzano, Ph.D., and Brian McNulty, Ph.D., from
Mid-Continent Regional Educational Laboratory (McREL) began synthesizing the body of
research on the effects of leadership practices on student achievement. In Balanced Leadership:
What 30 years of research tells us about the effect of leadership on student achievement, McREL
identified 21 leadership responsibilities that are significantly associated with student
achievement. They have translated the results of this research into a balanced leadership
framework that describes the knowledge, skills, strategies, and tools leaders need to positively
impact student achievement. The framework moves beyond abstraction to concrete
responsibilities, practices, knowledge, strategies, tools, and resources that principals and others
need to be effective leaders.
McREL’s leadership framework is based upon the idea that effective leadership means more than
simply knowing what to do. Effective leadership means knowing how, when, and why to take
action. A combination of knowledge and skills is the essence of balanced leadership. McREL
leadership characteristics and behaviors include:
• Affirmation
• Change Agent
• Communication
• Contingent rewards
• Culture
• Curriculum, instruction, assessment
• Discipline
• Flexibility
• Focus
• Ideals and beliefs
• Input
• Intellectual stimulation
• Knowledge of curriculum, instruction,
assessment
• Monitors and evaluates
• Optimizer
• Order
• Outreach
• Relationship
• Resources
• Situational awareness
• Visibility
Principals form the core of educational leadership in school districts. Over the past two decades,
the role of the principal has changed from that of a building manager who makes sure that
schedules are met, the school is maintained, and that discipline is properly enforced, to an
education leader responsible for consistency of curriculum implementation on the campus, the
quality of the instruction in the classroom, and student performance.
Oklahoma School Testing Program
Student assessment is an integral part of measuring student performance. The Oklahoma School
Testing Program (OSTP) develops the various standards-based tests that students must take
during the school year. The Oklahoma Core Curriculum Tests (OCCT) consist of criterion
referenced tests (CRTs) designed to measure student attainment of skills established for core
classes. The OCCT helps monitor student and school performance relative to the state mandated
curriculum standards called PASS.
Eldorado Public Schools Instructional Delivery
The OSTP program used a phase-in process to increase tested grades and subjects. CRTs are
currently administered in grades three through high school in this manner:
• third grade: Reading and Mathematics;
• fourth grade: Reading and Mathematics;
• fifth grade: Reading, Mathematics, Science, US History, and Writing;
• sixth grade: Reading and Mathematics;
• seventh grade: Reading, Mathematics, and Geography;
• eighth grade: Reading, Mathematics, Science, US History/Constitution/Government, and
Writing; and
• high school: End-Of-Instruction (EOI) tests in English II, English III, Biology I, US History,
Algebra I, Algebra II, and Geometry.
All students in the tested grades and subjects must participate in the OSTP. The test results for
Regular Education students who have attended for the Full Academic Year (FAY) count towards
a school’s and district’s overall Academic Performance Index (API). A student is considered
FAY if he/she enrolled within ten days of the beginning of the academic course and did not have
an enrollment lapse of more than ten consecutive school days until the date of testing. Student
test scores fall into one of the following four categories which were amended during the 2009
Oklahoma Legislative Session:
• Advanced – student demonstrates superior performance on challenging subject matter;
• Proficient (called Satisfactory prior to 2009)– student demonstrates mastery of appropriate
grade level subject matter and is ready for the next grade, course, or level of education, as
applicable;
• Limited Knowledge – student demonstrates partial mastery of the essential knowledge and
skills appropriate to his/her grade level, course, or level of education, as applicable; and
• Unsatisfactory – student does not perform at least at the limited knowledge level.
In 2005, a state law entitled Achieving Classroom Excellence (ACE) began requiring students
entering the ninth grade in 2008-09 (the current junior class) to pass four of the seven EOI tests
and earn a minimum of 23 credits in order to graduate from high school in 2012. All students
must pass the Algebra I and English II tests. All students must then pass at least two additional
EOI assessments from the other five areas (Biology I, US History, Algebra II, Geometry, English
III). Passing is considered scoring at the Proficient or Advanced levels.
To assist teachers and districts in teaching PASS and preparing students for the OCCT, the
Oklahoma State Department of Education (SDE) provides a variety of resources on its website.
These resources include:
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• PASS by subject and grade level;
• test blueprints for each grade level and subject area test that show what percentage of the test
each skill will represent;
• test/item specifications that show the specific standards and objectives to be tested;
• released test questions;
• writing samples;
• a list of words, called the academic vocabulary, that are used on each test; and the
• Depth of Knowledge (DOK) levels and percentage weights for all OCCT test questions in
Test Specifications.
FINDING 2-1
EPS is providing additional time and learning opportunities for students by offering after school
tutoring. Keeping up with homework and completing makeup work due to absence, should have
positive impact on a student’s performance on the state’s tests.
COMMENDATION
EPS has implemented a mandatory after school tutoring program for students in grades
five through twelve.
Test Results for 2007-09
Due to federal privacy regulations, schools may not report aggregate scores if five or fewer
students are tested in any given subject area. In 2008-09, EPS had 18 tests for which the data
were protected by privacy laws. Since the peer districts face similar reporting problems, except
where otherwise noted, Exhibits 2-1 through Exhibit 2-7 display EPS and peer district scores
averaged over a three-year period. The peer district and state averages reported are also for the
2007-09 testing cycles.
In the three year average, EPS third grade students performed below the community group
average and state in reading and math. In both cases, EPS students also scored lower than any of
the peer districts (Exhibit 2-1).
Eldorado Public Schools Instructional Delivery
Exhibit 2-1
Percentage of EPS and Peer District Grade 3 Regular Education,
Non-High Mobility Students Scoring Satisfactory or Above
2007-09 (three year average)
Entity Reading Math
Eldorado 67% 67%
Blair 87% 90%
Duke 96% 88%
Felt 77% 77%
Olustee 78% 100%
Ryan 78% 81%
Community Group H2 80% 70%
State 84% 77%
Source: Office of Accountability, Profiles Database
Exhibit 2-2 shows 2007-09 test results of fourth grade students in EPS regular education. EPS
students performed above the community group in reading and math. In reading, EPS scored
above the state but below the community group. EPS scores in reading were tied with one other
district for highest among the peer districts. The math scores were third highest among the peer
districts scores.
Exhibit 2-2
Percentage of EPS and Peer District Grade 4 Regular Education,
Non-High Mobility Students Scoring Satisfactory or Above
2007-09 (three year average)
Entity Reading Math
Eldorado 92% 75%
Blair 85% 62%
Duke 88% 82%
Felt 77% 92%
Olustee 92% 92%
Ryan 81% 65%
Community Group H2 81% 74%
State 86% 81%
Source: Office of Accountability, Profiles Database
The 2007-09 OCCT grade five tests included five content areas: reading, math, social studies,
science, and writing. Exhibit 2-3 shows the results for grade five EPS students. Student
performance was above the community group in all subjects except for social studies and above
the state in reading.
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Exhibit 2-3
Percentage EPS and Peer District Grade 5 Regular Education,
Non-High Mobility (FAY) Students Scoring Satisfactory or Above
2007-09 (three year average)
Entity Reading Math
Social
Studies Science Writing
Eldorado 87% 80% 60% 87% 87%
Blair 70% 74% 67% 85% 95%
Duke 76% 84% 54% 86% 86%
Felt 83% 83% 67% 92% 79%
Olustee 75% 92% 75% 83% 62%
Ryan 84% 84% 79% 98% 100%
Community Group H2 74% 75% 65% 84% 81%
State 81% 82% 75% 87% 88%
Source: Office of Accountability, Profiles Database
Exhibit 2-4 shows 2007-09 test results for sixth grade students in EPS. Performance in reading
and math was above the community group and the state. Compared to peer districts, EPS
students were third lowest in reading and tied for second highest in math.
Exhibit 2-4
Percentage EPS and Peer District Grade 6 Regular Education,
Non-High Mobility (FAY) Students Scoring Satisfactory or Above
2007-09 (three year average)
Entity Reading Math
Eldorado 86% 95%
Blair 75% 76%
Duke 87% 83%
Felt 89% 78%
Olustee 83% 100%
Ryan 88% 95%
Community Group H2 76% 73%
State 80% 78%
Source: Office of Accountability, Profiles Database
Performance for students in grade seven is shown in Exhibit 2-5. The results show that EPS
students scored above the state and community group average in reading, math, and geography.
Comparison to individual peer data shows that EPS student performance in reading was the
second highest, performance in math was the highest, and performance in geography was the
third highest.
Eldorado Public Schools Instructional Delivery
Exhibit 2-5
Percentage EPS and Peer District Grade 7 Regular Education,
Non-High Mobility (FAY) Students Scoring Satisfactory or Above
2007-09 (three year average)
Entity Reading Math Geography
Eldorado 88% 100% 94%
Blair 83% 77% 96%
Duke 88% 72% 81%
Felt 100% 67% 100%
Olustee 69% 72% 81%
Ryan 61% 77% 81%
Community Group H2 76% 70% 84%
State 80% 76% 87%
Source: Office of Accountability, Profiles Database
Exhibit 2-6 shows the 2007-09 results for grade eight students in EPS. In reading and science,
EPS students were above all peer districts, the community group average, and the state. In math,
EPS was above the community group average, the state, and all but one of the peer districts.
Scores for writing were below the community group, the state, and all peer districts. In social
studies, EPS was third lowest among peers, falling below the state average as well.
Exhibit 2-6
Percentage EPS and Peer District Grade 8 Regular Education,
Non-High Mobility (FAY) Students Scoring Satisfactory or Above
2007-09 (three year average)
Entity Reading Math
History/
Constitution/
Government Science Writing
Eldorado 100% 92% 69% 100% 75%
Blair 74% 90% 79% 95% 98%
Duke 87% 71% 58% 97% 94%
Felt 88% 100% 88% 100% 100%
Olustee 68% 82% 36% 86% 88%
Ryan 79% 78% 76% 96% 88%
Community Group H2 76% 71% 63% 87% 93%
State 81% 78% 75% 90% 94%
Source: Office of Accountability, Profiles Database
The EOI tests are administered to students taking the related high school level coursework. Only
two years of data are available for Algebra II, Geometry, and English III. Eighth grade students
taking the related coursework are also included in the results for the district. EPS students were
above the community group and state averages in Algebra I, English II, US History, and Biology
I. They were also above the community group – but below the state – in Algebra II and
Geometry. English III scores were not available, due to privacy laws, even using the two-year
average (Exhibit 2-7). Compared with peer districts, EPS students were highest among districts
with data in Algebra I, English II, US History, Biology I, and Algebra II. EPS students were
second highest in Geometry.
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Exhibit 2-7
Percentage of EPS and Peer District Regular Education,
Non-High Mobility (FAY) Students Scoring Satisfactory or Above on EOI Tests
2007-09
Entity Algebra I Eng II US Hist Bio I Algebra II* Geometry* Eng III*
Eldorado 100% 92% 92% 79% 63% 75% **
Blair 88% 74% 72% 65% 47% 65% 88%
Duke 68% 71% 56% 61% 50% 76% 85%
Felt 100% ** 89% 75% ** ** **
Olustee 74% 79% 52% 72% 50% 71% 89%
Ryan 61% 63% 61% 42% 3% 54% 74%
Community Group H2 69% 71% 58% 52% 36% 63% 73%
State 80% 79% 72% 63% 61% 73% 83%
Source: Office of Accountability, Profiles Database
*Two year averages used as these tests were not in place prior to 2008
**Data Protected by Privacy Laws
Academic Performance Index
The Academic Performance Index (API) is a numeric score that measures district performance
based upon a variety of educational indicators, though a great deal of emphasis is still placed
upon test results. The possible scores range from zero to 1500. The factors used in the calculation
of API scores include:
• The OSTP - as measured by student success on state achievement tests;
• School Completion - including attendance, dropout, and graduation rates; and
• Academic Excellence - including ACT scores and participation, Advanced Placement (AP)
credit, and college remediation rates in reading and mathematics.
As shown in Exhibit 2-8, EPS’s API was above the state average in 2006-07 and 2007-08 and
below the state average the remaining years. Compared to the peer districts, EPS had the lowest
score in 2005-06 but finished second in 2006-07.
Exhibit 2-8
District API Scores
Entity 2004-05 2005-06 2006-07 2007-08 2008-09
Eldorado 1096 1118 1300 1282 1277
Blair 1128 1219 1238 1247 1289
Duke 1264 1206 1263 1244 1393
Felt 936 1187 1202 1371 1432
Olustee 1309 1206 1211 1290 1242
Ryan 1131 1176 1308 1192 1217
State 1159 1180 1252 1279 1289
Source: Oklahoma State Department of Education
Eldorado Public Schools Instructional Delivery
Under the accountability provisions in the No Child Left Behind (NCLB) Act, the federal
government evaluates all public schools sites, school districts, and states for Adequate Yearly
Progress (AYP). The NCLB annual report card for EPS in 2008-09 shows that the district has
met the AYP standard.
The SDE provides a worksheet for calculating API scores. It can be found at the following
website: http://www.sde.state.ok.us/AcctAssess/pdf/API/CalculatingAPI.pdf. If the district has
tests or subgroups for which data are not reported because of privacy laws, this worksheet can be
used by plugging in raw scores with numbers of students scoring at different levels to generate
API scores in those categories. Additionally, the district can calculate the percentages of students
passing each test by using the score reports it receives on each student.
Exhibit 2-9 shows the percentage of graduates completing college bound curriculum. EPS is
above the state average in 2004-05 and 2008-08 and below in the remaining three years. There
was a sharp decline in 2005-06. EPS is also below the community group in three out of the five
years.
Exhibit 2-9
Percentage of EPS and Peer District Graduates
Completing Regents’ College-Bound Curriculum
Entity 2004-05 2005-06 2006-07 2007-08 2008-09
Eldorado 87.5% 7.1% 51.7% 50.0% 100.0%
Blair 91.5% 100.0% 100.0% 100.0% 100.0%
Duke 52.9% FTR 100.0% 71.4% 100.0%
Felt 100.0% 100.0% FTR 120.0% 33.3%
Olustee 100.0% 31.7% 85.7% 42.9% 83.3%
Ryan FTR FTR 77.8% 72.7% FTR
Community Group H2 74.6% 78.3% 85.1% 88.9% 79.6%
State 77.9% 79.1% 78.0% 81.8% 81.9%
Source: Office of Accountability, Profiles Database
FTR – Failed to Respond
Educational Planning and Assessment System
The Educational and Planning Assessment System (EPAS) was created by ACT, Inc. and
provides an integrated series of assessments and reporting services to support educators as they
help students set and reach goals for life after high school. The components of EPAS are the
EXPLORE, PLAN, and ACT assessments. EPAS assessments provide information about
progress at crucial points in a student’s educational career. Each test reports scores for four
sections - English, math, reading, science – and a composite score, which is an average of the
four subjects.
Information provided by EPAS assessments is linked longitudinally to provide an academic
information management system. These linked reports can be used to monitor student progress
over time, detect trends, and evaluate instructional outcomes in support of school improvement
efforts. The program is funded by the Oklahoma State Regents for Higher Education (OSRHE)
and content guides are available online to assist districts in curriculum alignment and
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improvement efforts at: http://okhighered.org/epas/.
EXPLORE, the eighth grade assessment, is the entry point to EPAS. The EXPLORE test
includes objective assessments in English, math, reading, and science reasoning. It also includes
activities that help young students begin the process of career and educational exploration.
EXPLORE provides baseline data for monitoring student progress through the high school years
in preparation for the ACT.
Exhibit 2-10 shows how EPS students performed on the EXPLORE test as compared to their
peers nationally. EPS scores were higher than the national average in math. Their English,
reading, science, and composite scores were lower than the national average.
Exhibit 2-10
EPS 8th Grade EXPLORE Scores
Compared to the National Average
2009-10
Subject EPS Score National Average
English 12.4 14.2
Math 16.4 15.1
Reading 13.6 13.8
Science 15.8 15.9
Composite 14.8 14.9
Source: EXPLORE, Profile Summary Report
PLAN, the 10th grade assessment, also includes objective assessments in English, math, reading,
and science reasoning. The educational and career planning activities are tailored to the needs of
students who are preparing to make decisions about life after high school. PLAN provides a
midpoint review of a 10th grade students’ progress toward their educational and career goals.
Exhibit 2-11 shows how EPS students performed on the PLAN test as compared to their peers
nationally. EPS scores were the same as the national average in math and lower than the national
average in all other areas. The composite score was also below the national average.
Exhibit 2-11
EPS 10th Grade PLAN Scores
Compared to the National Average
2009-10
Subject
EPS
Score National Averag